Governor Whitman’s 
Report 


TO THE VOTERS 


OF THE 


STATE OF NEW YORK 


1915—1916 


CONTENTS 


The Governor PAGE 

To tthe: voters 22.35 hccs cane ages an, aes as om eee ane onsen 5) 
Appointments 

On basis of merit and efficiency 45 v0. 6 fe hielo eee ee 6 
Finance Reform 

Open hearings — itemized appropriations................+-- 15 
Pay-as-You-Go 

Democratic; debiss Paid scan cecil sancti soo 6 kta: eee ee 18 
Highways 

One thousand five hundred miles of road built............... 21 
Agriculture 

Indemnities paid — education advanced..................+- 24 
Conservation 

Policy not polities — service to the future................... 28 
Canals 

One hundred and fifty-four miles of new waterways opened.... 33 
Labor 

Protection forthe ‘worker... . aly. . eas ae eee eee 39 
Preparedness 

Prompt mobilization— proper organization — physical train- 

PTF ae SGN Ae ay ane Sin ne ealis une R's ee tana eee ee 42 

Public Service 

A people’s Public Service Commission..............200e000- 48 
Health 

Disease checked — mortality lowered..............00 cee eeee - 50 
Quarantine Station 

Transferred to -Hederal-contral).25% eee ee ee ere o4 
Elections 

Useless positions abolished — work centralized............... 56 
Civil Service 

Laws enforced —'squaredealto all v.y.%. deo. eee ee oe 57 
Taxes 

Cooperation with ‘local assessors. Joo. 32 ee eee eee 59 
Prisons 

Sing Sing to be rebuilt — reforms advanced.............-0%% 65 
The Insane 

More and better accommodations — scientific segregation..... 68 
Charitable 


Equipment increased — deficiencies met...............-00-- 75 


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Governor Whitman to the Voters 
of the State | 


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/ 7 : [ 


State oF New York — Executive CHAMBER, . 
_ Atpany, September 7, 1916. | 


I assumed the duties of Governor of the State of New York on Janu- 
ary 1, 1915. I found that the preceding Democratic administrations 
of Governors Dix, Sulzer and Glynn had brought the State’s business 
to the verge of chaos. I determined to reorganize and revitalize the 
State Departments and to bring them to the highest point of efficiency 
possible. | | 

I am a candidate for re-election. I believe that you should have 
before you: the complete record of my administration. I believe that 
this record entitles me to your support. If you disagree with me, vote 
against me; if you agree with me, I ask your vote that in your interest 
I may be enabled to continue the work in which this administration 
is now engaged. 

In considering this question, it is proper that you should bear in 
mind these facts concerning the administrations which preceded me; 
Governor Dix was denied a renomination by his own party; Governor 
Sulzer, refusing to obey Tammany Hall, was impeached; Governor 
Glynn, controlled by Tammany, was repudiated by you in favor of me. 

Any candidate of the Democratic party in this State will be nomi- 
nated and dominated by the identical forces that elected and controlled. 
my Democratic predecessors named above. Because of that domination, 
any such candidate can promise you at best no more than a return to 
the conditions which obtained under Governors Dix and Glynn or under 
Governor Sulzer. 

It is for you to determine by your vote whether the record I present 
to you justifies the continuance in office of my administration, or 
whether you will elect to return the State to the control of the forces 
which dominated the administrations of my three Democratic prede- 
cessors. 

Herewith I present the record of the present administration, sum- 
marized in the form of a report to you and supplemented by the 
reports of the department heads to me. 

[3] 


Four Years of Democratic Destruction 
Two Years of Reconstruction 


In’ the finances of the State, I found a tremendous accumulation of - 
unpaid debts and a system of lump sum appropriations concealing the 


purposes for which your money was to be spent. In the face of the most | F 


adverse criticism I provided for the payment of the State’s debts and 
for a system of itemized appropriations by: which you can tell where 
every dollar of your money goes. 

I vetoed items and bills totaling the sum of $4,466,366 presented to 
me by the two Legislatures which have met during my administration, 
and I decided upon these vetoes at open public hearings at which for 
the first time in the history of the State the Department Heads were 
called upon to justify their demands for their appropriations. 

I found that the Civil Service Laws were ignored and violated. I ap- 
pointed and supported a commission which has insisted upon a strict ad- 
herence to the spirit and the letter of the Civil Service Laws of the State. 

In the Conservation Department, I found an extravagant three-headed 
Commission, politically appointed and politically inspired, and I sub- 
stituted therefor a single-headed Commission, headed by a conserva- 
tionist of national repute, who wiped out extravagance and enforced 
the principles and laws of conservation equally toward all. 

The Highway Department was best known throughout the adminis- 
trations of the three preceding Governors, by the sensational scandals, 
both political and constructive, which emanated therefrom. We have 
stopped the activities of the ‘‘ bagmen”’ and are confining our energies 
to road building. Over fifteen hundred miles of road have been built 
during my administration. In 1913 it cost the State $1,040 per mile 
for the maintenance and repair of State and county highways. In 1916, 
it is costing the State $655 per mile, a difference of $385 per mile. 

In the Health Department, I have accepted the policy of its head, 
that ‘‘ public health is purchasable” and, by increased appropriations 
and the provision of proper equipment for a centralized State labor- 
atory, have advanced the cause of efficient disease fighting in this State. 
I secured legislation transferring the health office of the Port of New 
York to the Federal Government and upon my request to President Wil- 
son, a Federal officer was detailed to take charge of and is now directing 
this work. This office had been a political plum since its organization. 

In the Department of Architecture, I have abolished political pay- 
rolls which made a scandal of the capitol reconstruction and have used 
the services of that Department to assist, supervise and control the con- 
struction activities of the State. 

In the Prison Department, I found that the start made by Governor 
Hughes on the problem of a substitute for Sing Sing Prison had been 


[4] 


stopped by the Demoeratic administrations which followed him and pre- 
ceded me. In spite of a practically unanimous sentiment that the Sing 
Sing cellhouse should be either demolished or practically reconstructed, . 
I found that there had been no forward step in prison construction mado 


at Sing Sing under any of my Democratic predecessors. <A start hag... 
been risids toward demolishing the old cellblock of this prison and. ; 
toward building in its place a modern model prison, and at the same ._ ; 
time we have renewed the project of building a new farm and indus-..... 


trial prison to take the place of Sing Sing Prison except as a prison for. 
classification and distribution. I have supported every phase of the 


prison reform movement which has been started during this adminig- “ai 


tration. 


I found the hospitals and charitable institutions of the State scandal- . 


ously overcrowded because there had been no proper provision in the 
way of new construction for an increasing number of inmates and, by 
furthering and approving needed appropriations for such construction, 
have reduced this overcrowding as rapidly as possible. ee 

I found the canal system of the State dominated by a “ canal ne bs 
whose chief pursuit seemed to be the levying of political blackmail. 
My administration has supplanted this regime by a highly trained and 
technically efficient canal working force. My services to the comple 
tion of the Barge canal include an appropriation of $3,654,000 in the 
budget of 1915 for contracts entered into in excess of the $101,000,000 
bond issue during the preceding administration and a referendum of 
$27,000,000 to complete the enterprise. | 

I found that the laws of the State relating to the protection of labor 
were being administered and extravagantly administered by four sepa- 
rate departments. I consolidated these activities into one paid com- 
mission and thereby saved the State upwards of $300,000 a year. I 
approved the measure for widows’ pensions, and I vetoed the measure 
under which it would have been possible, under certain circumstances, 
to work women in factories twelve hours a day for seven days a week, 
I furthered and approved a bill extending the scope of the Workmen’s 
Compensation Law to any person engaged in a hazardous employment, 
carried on by the State itself or by any city or other subdivision of the 
State. 

In the Department of Agriculture, I paid in the first year of my ad- 
ministration $780,000 for the reimbursement to farmers for the killing 
of their live stock by the State to prevent the spread of disease. 
Four hundred and thirty-two thousand dollars of this amount: was 
for claims from one to five years old. I have definitely extended 
the equipment and activities of those institutions through which the 
State is furthering scientific farming, such as the Geneva Experiment 
Station, the Agricultur al Schools of the State and the Farm Bureaus 

[5] 


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and the Farmers’ Institutes. Under my administration no claim hdl 
been made to the Department of Agriculture of a defaulting milk 
dealer or produce dealer. The Department has recovered thousands 
of dollars owed to farmers and withheld from them by dealers, “Althougl 
effort was made to keep down appropriations, I secured for the Depa 
ment of Foods and Markets an increased appropriation of 65 per cent, 
over that given by my predecessor. 

_ I have vigorously supported the Department of Education in the 
development of all activities under its jurisdiction. 

I have taken the Public Service Commissions of the State out of 
politics and made them agencies of the people and not of corporations. 

I have secured legislation providing for properly supervised physical 
training for school children which constitutes the best possible real 
preparedness for either peace or war. 

I have stood for home-rule for the cities of the State. Testimony iz in 
this respect from the city of New York is contained in the following 
statement by the Assistant Corporation Counsel assigned to Albany 
as legislative representative during the two sessions ‘of: my administra- 
tion: 

“The Governor approved every one of the bills accepted by the 
Mayor. Since the Constitution was amended in 1894 by providing 
for the transmission of special city bills to local authorities no 
Governor of the State has accorded such consideration to legislation 
accepted by the city of New York.” 


’ I have appointed to office men of the highest type. In their selection 
fitness for the position and real efficiency have been the tests applied. 
In a speech at the Lotus Club, New York, early in the administration, 
T said that I was ‘“ hunting for heads with brains in them,” and on 
this qualification appointments were made. 

' Where I found in office at the beginning of the administration 
Democratic incumbents of whose efficiency I was satisfied, I withstood 
every pressure aimed at their removal. Where I found incumbents in 
office whom I deemed inefficient, I ousted them in one way or another, 
promptly. Some of these ousted ones were Democrats and some were 
Republicans, but the test was applied equally to each. 


Major General W. W. Wotherspoon Appointed Superintendent of 
Public Works 


My first appointment was that of Major General William W. Woth- 
erspoon, former Chief of Staff of the United States Army as Superin- 
tendent of Public Works. General Wotherspoon’s training in the 
United States Army, from the time of his appointment as a second 
lieutenant 1 in 1873 until his retirement from the highest a im that 

[6] 


organization, was a training which especially fitted him for this service. 
in the State. 

The demands upon an army officer, and particularly upon a Chief, 
of Staff, both in the way of executive capacity and of technical efficiency, 
are such that it is doubtful whether in any other man I could have 
found a combination of qualities better fitted to operate the canal 
system of New York State. That system presents to the man charged. 
with its operation problems more varied than any completed canal 
‘system in the world, and Wotherspoon’s immediate grasp of the problems 
of administration and engineering which he found awaiting him justi- 
fied the appointment. 

Wotherspoon proceeded in his first year to cut the item of extraordi-' 
nary repairs to the canal system from $150,000 a year to $66,000 a 
year; he saved thousands of dollars which were previously poured out, 
either in extravagance or graft, by a system of accurate inventories of 
State property; he abolished a useless office that cost $22,000 a year 
and he brought into the department an additional revenue of upwards 
‘of $12,000 a year by a proper handling of the State’s rentable lands 
bordering on the canals. 


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‘Samuel H. Ordway Selected to Head a New Civil Service Commission 


Early in the administration, I found that one of the foundations of 
‘the inefficient administration of a previous four years under Dix, Sulzer 
‘and Glynn, was the improper and unfair application of the principles 
of Civil Service. In the roots of every departmental situation, where 
‘waste, extravagance and petty pay-roll graft had benumbed the efficiency 
of that division of the State service, I found a violation of the Civil 
‘Service principles of the Constitution and statutes of the State. I 
‘approached that problem from the standpoint of my belief that to put 
ithe interests of a political party above the interests of the State would 
wwork injury in the end to both, and carrying out honest conviction on 
‘this subject, determined that the Civil Service laws of the State should 
‘be given full force and effect. Securing the resignations of the two com- 
‘missioners whose terms did not expire, I appointed, on February 1, 
1915, an entire new Civil Service Commission, designating Samuel H. 
Ordway as chairman, and naming as his associates, Willard D. 
McKinstry and Colonel William Gorham Rice. These men, each with 
an enviable record in real Civil Service Reform, fought out the battle 
which the spoils system invariably fights against the merit system. 

Since the reorganization of that commission, whose duties are so vital 
to the efficiency of the State’s employees, over two hundred positions 
have been brought under the competitive service which were formerly 
filled as a reward for political activity, with no bearing on the fitness of 
the appointee for the work he was expected to do. Both for appointment 

[7] 


to positions in the State service and for promotion within that service, 
this commission has insisted that candidates must submit to the test of 
impartial examination, in order that their fitness may be determined. 


Edwin Duffey Chosen to Direct the Department. of Highways 


The largest single problem of the administrative affairs of the State” 


of New York is to be found in the Department of Highways. Bond 


issues, appropriations and contributions from counties make a total of 


over $150,000,000, which has been devoted to the purpose of improved 
highways in this State. The size of this available fund, the vast geo- 
graphical spread of its application and the class of labor by which a 
large percentage of the work under it was done, combined to make this 
department a dumping-ground of politics. 

Through the Democratic administrations of Dix, Sulzer and Glynn, 
there ran a vein of political corruption in connection with this gigantic 
enterprise which had its culmination in the exposures of the “ bagmen ”’ 
who levied cash tribute on both contractors and workmen in this depart- 
ment, and in the indictments for illegal construction with materials not 
corresponding with the specifications of contracts. 


With both of these situations of corruption, I was familiar, by reason 


of inquiries instituted and conducted, as District Attorney of New 


York, from which indictments of political and road-building grafters’ 


emanated. Because of this familiarity with the scandals of this depart- 
ment, I was the more anxious to put it in the hands of someone 
with whose character, trustworthiness and efficiency I was personally 
acquainted. 

Because I deemed good roads an imperative necessity, because I 
wanted the people of New York to get a dollar’s worth of value for 
every dollar expended on their roads, and because I wanted to put an 
end to inefficiency and political “ pull,” I appointed, as Highway Com- 
missioner, my life-long friend, Edwin Duffey, a former District Attor- 
ney of Cortland county. 

Duffey made a clean-sweep of the useless political jobs in that depart- 
ment. Duffey, acting in cooperation with the Civil Service Commission, 
made it possible for engineers and real road-builders to get employment 
in the department and promotion after employment, according to their 
merit. Duffey installed a system of efficiency ratings, by which all 
wage increases in the department are arrived at. 


Charles 8. Wilson Put in Charge of the Department of Agriculture 


The department of the State of New York which comes into most 
frequent personal contact with the largest number of its citizens, in a 
business way, is the Department of Agriculture. 

[8] 


{ 


That department, in one way or another, does business in the courss 
of a year, not only with almost every farmer in the State of New 
York, but also with thousands of men who buy products of the farm, 
either at wholesale or at retail. 

In these days of modern and scientific farming, when the farm like 
the shop has its specialists in every division of productive labor, this 
department has its bureaus of specialists to meet the demands of the 
specialists who are producing everything that can come from the soil, 
whether of vegetable or animal life, or the extract therefrom. 

Such a department, I realized when I took office, demanded a head 
who should be a combination of highly trained specialist, with a broad 
education in all lines of farm activities, and an executive of proved 
capacity. 

Seeking such a man, I went to President Jacob Gould Schurman, of 
Cornell University. I asked him to select from among those trained 
in the Cornell Agricultural College maintained by the State the best 
man for the place. 

He suggested Charles S. Wilson, a member of the faculty of the 
Cornell Agricultural College, and I appointed him. 

Wilson proceeded along the same lines followed by the other depart 
mental heads appointed by me and began immediately to weed out the 
useless job-holders in his department. 

Wilson arranged a constructive program for the county fairs. Work« 
ing through those fairs and through other educational facilities of his 
department, he has started a movement toward standardization of New 
York products which will put them on an equal market footing with 
competitors from other States. 

As an example of this work, he conducted a study to ascertain why; 
in some of our up-State cities, western apples for the high-priced trade 
were bought in preference to the New York State product, and found 
that the quality was equal, but the organized western apple growers had 
standardized the sizes to a degree previously ignored by the producers 
of New York. 

Wilson has extended the scope and growth of farm bureaus and 
farmers’ institutes. Through these activities he has been educating 
farmers, dairymen and fruit growers, not only to increase their product, 
but to improve the quality of their product and to improve the methods 
by which it is put upon the market; all of which work is increasing, 
by a definite percentage, the price which New York farmers are getting 
for their products. 

Wilson made a careful study of the needs of the agricultural schools 
of the State and of the Geneva Experiment Station, and on his recom: 
mendations [ furthered and approved the bills providing for necessary 
additional buildings at these schools and at the Experiment Station. 


[9] 


Lawyers of Reputation and Ability Named for Court of Claims 


When I entered office, there was an accumulation of over 2,000 
elaims against the State of New York, in connection with Barge canal 
building operations, aggregating $60,000,000. Claims growing out of 
appropriation of property by the State bear interest on the awards from 
the date of appropriation. An accumulation of $60,000,000 in claims 
meant, therefore, an interest charge of approximately $3,000,000 
annually. _ 

It can easily be seen that such an accumulation of claims is an 
expensive burden for any business, be it public or private, to carry. 
IT found that the settlement of these claims was in the hands of a 
Board of Claims, only one of the three members of which was a lawyer. 
This board was further handicapped by a law requiring it to hear claims 
as a body. I furthered and approved legislation to replace this board, 
which was so rapidly falling behind in the work it was supposed to do, 
by a court composed of lawyers and so framed that it should be capable 
of expansion to the size of five members, if that were found necessary, 
to clean up the accumulated cases. The law also provided that cases 
could be heard by one or more judges and matters thus be expedited. 

-I appointed, as judges of this Court, in February, 1915, Adolph J. 
Rodenbeck, Fred M. Ackerson and Thomas F. Fennell, and later, when 
the Attorney-General had certified to the necessity of additional judges, 
added the names of Charles R. Paris and Nathaniel P. Willis. Judge 
Willis subsequently resigned and I appointed William D. Cunningham 
to the vacancy. 

In the first year following their appointment, these judges heard a 
total of 1,100 cases. This year from March up to August 7th they have 
heard 554 cases. Because of this reform and because of the ability - 
of the men appointed to these important positions, the State has saved 
hundreds of thousands of dollars in interest charges which had been 
accumulating under four years of Democratic administration. 


Oscar S. Straus Heads a New First District Public Service Commis- 
sion —Irvine Reappointed to the Second 


During the first year and a half of the administration, it beeame my 
duty, because of removals, resignations and expirations, to name an 
entire Public Service Commission for the First District. 

To no other Governor, except Governor Hughes, when the Public 
Service Commission Laws were passed, has it fallen to name more than 
two members of this body which, in addition to the regulatory work of 
transportation in Greater New York, has supervision over the vast con- 
struction operations of the new subwavs svstem of the metropolis. 

-I determined to place in the control of these vast operations a board 
[10] 


so well balanced that in its membership would be found a trained 
specialist for each phase of the work under its supervision. 

Oscar S. Straus, a master mediator, respected and trusted by both 
eapital and labor in hundreds of disputes, pre-eminently fitted to head 
a commission whose continuous duty it is to make both capital and 
labor work together for the benefit of public transportation; Henry W. 
Hodge, an engineer, whose fame in this profession is international, to 
supervise the tremendous engineering problems of this Commission; 
William Hayward, a trained lawyer, who, in his work as counsel for 
a legislative investigation committee had shown a grasp of the possibik 
ities of legal enforcement of its orders hitherto unrecognized in the 
Commission; Charles S. Hervey, an analytical specialist on govern 
mental finance, with twenty years’ training in the office of the Comp 
troller of New York and Travis H. Whitney, a public utility expert, 
who had been selected as secretary of the Commission at its inception, 
at the suggestion of Governor Hughes — these were my appointments 
to this powerful Commission — appointments dictated solely by a 
measure of merit and fitness, not alone in the individuals named, but im 
their composite ability to handle and supervise the problems of that 
Commission, in contrast to the measure of political fitness which had 
governed the appointments to the same Commission under Dix, Sulzer 
and Glynn. 

In the Public Service Commission for the Second District, con- 
cerned with the public utilities of the State outside of Greater New 
York, I have named two men. My first appointment in 1915 was of 
James O. Carr, a lawyer with years of experience with the public utility 
problems of up-State sections. In 1916, the term of Commissioner 
Frank Irvine expired. Commissioner Irvine was a life-long Democrat; 
naturally, there was tremendous pressure brought to give the place te 
a member of my own political party. I reappointed Commissioner 
Irvine, and in so doing became the first Governor in the history of the 
State to reappoint a member of the opposite political party to this 
Commission. 


Experts in Taxation Named for the Reorganized Tax Department 


In the campaign of 1914, as a candidate for election, I singled out 
the inefficiency and almost criminal negligence of the Democratic 
administration of the State Tax Department for special attack. For 
four years no constructive administrative act had been initiated by 
that department. This department which should be administered: by 
experts was a veritable home for incompetent Democratic politicians, 
one of whom, Louis F. Haffen, was removed from the office of Borongh 
President of the Bronx by Governor Hughes. Confusion in its affairs, 
political favoritism in the application of its rules and negligence which 

| [11] 


resulted in an accumulation of unaccomplished work, had brought that 
department to a condition where its service to the State was almost nil.” 

I recommended legislation for the creation of a new tax commission, ’ 
and upon its passage appointed as members of that commission former 
Senator Martin Saxe of New York City, who was for four years 
a member of the Senate Committee on Taxation and a member of the 
Special Tax Commission of 1906; Hon. Walter H. Knapp, for many 
years county judge of Canandaigua, who enjoyed a great experience 
im rural taxation; and former Senator Ralph W. Thomas, of Hamilton, 
at one time a professor in Colgate University and a student of economics 
and public finance. This Commission has added upwards of 
$60,000,000 to the assessments of special franchises; it has inereased 
the receipts from corporation franchise taxes. considerably over 
$1,000,000, and for the year 1916 the Corporation Tax Bureau of 
the Tax Deparcment will produce, approximately, $12,250,000, the 
greatest amount of corporation taxes in the history of the State, As 
a result of the work of this Commission with the local assessors, the 
total assessment of real estate for the State for the year 1916 will 
snow an approximate increase of over $300,000,000. The Commission 
has brought up to date the work of examinations of the offices of 
sounty clerks which, in the matter of mortgage tax collections, had 
been allowed to fall behind for the previous four years. It prosecuted 
disputed cases, corporation trust mortgages, bringing to the State over 
$125,000 of mortgage tax funds in the first year. 


George D. Pratt Selected as Conservation Commissioner 


The Democratic administration, under Governor Dix, in 1911, pro- 
vided for a Conservation Commission, consisting of three commissioners 
at $10,000 a year each, and three deputies at $3,500 a year each. This 
@xpensive organization I found in office when I was inaugurated. 
Both on the ground of the political character of the incumbents and 
mpon the ground of the extravagance of its organization, this Com; 
mission did not appeal to me as one which could handle the vast 

roblems of the conservation of the resources of the State of New 

Work to the best advantage of the citizens of the State. At my sug- 
etetsbns legislation was framed and passed abolishing this expensive 
three-headed Commission in which the annual salaries of Commission- 
ers and Deputy Commissioners aggregated $40,500 and substituted 
therefor a single-headed Commission, with one deputy. The reorganiza- 
‘iom provided for the centralizing of all power and responsibility in 
the hands of the Commissioner and his deputy and fixed their salaries 
at $8,000 and $6,000 a year, respectively, a total of $14,000 for 
administration salaries, as compared with a total of $40,500 for the 
preyious Commission, 

[ 12 ] 


) For these responsible and important posts,-I selected for Commis- 
sioner Mr. George D. Pratt, of Brooklyn, and for Deputy Commis 
sioner Mr. Alexander Macdonald, of St. Regis Falls. Mr. Pratt was 
president of the Camp Fire Club of America, treasurer of the National 
Council of Boy Scouts, chairman of the Physical Department of the 
International Y. M. C. A., a founder of the Permanent Wild Life Pro- 
tective und and a power in the country-wide conservation movement 
in the United States. 

His deputy, Mr. Macdonald, had been for years a resident of the 
Adirondack section, one of the counties of which he had represented 
in the Assembly, and is familiar with all the problems of Adirondack 
conservation. 

Commissioner Pratt has reduced the number of employees, brought 
the entire service of the Conservation Department under strict Civil 
Service regulations, has surveyed a fire map of the forests, correspond- 
ing in detail as applied to the vast stretches of danger spots in our- 
forest preserves, to the highly detailed fire maps with which our cities 
now provide metropolitan fire departments, and from that map he 
has worked out the most comprehensive plan of organization’ agains? 
fire fighting in the forests that has ever been undertaken in this country. 

In ousting illegal occupants of State lands, he has proceeded’ with 
equal justice against both rich and poor. He is planning om 
reforestation of the 139,000 acres that have been burned off because 
of improper fire protection in our forests during the last fifteen yeara, 


George E. Green Put in Charge of the Excise Department 


I appointed as Excise Commissioner Mr. George E. Green, a former 
State Senator from Binghamton. | 

Commissioner Green has effected an annual saving of over $50,008 
in the salaries and expenses of that Department and the operations of 
the Department have been conducted with an exact and fearless regard 
for the enforcement of the law. 7 


Jesse S. Phillips Named as Superintendent of Insurance 


Mr. Jesse S. Phillips, whom I named as Superintendent of Insur 
ance, has demonstrated by his record of economical administration of 
his Department his fitness for the position to which he was appointed. 
He has’abolished twenty superfluous positions which had been added, 
and, a few at a time, during the previous administration of the Depart 
ment, at an added and needless expense of over $40,000 a year..... 


Dr. Frederick L. Marshall in Charge of the Department of Elections 


In the Department of Elections, I had ‘had experience as District: 
Attorney of New York county with the problem of corrupt practices. 
[13] 


with regard to elections. Appreciating from these experiences that the 
problem was one which centered in New York city, I realized the futil- 
ity and extravagance of an organization in that Department which em- 
braced three Superintendents of Elections. I approved a bill replac- 
ing that extravagant organization of the previous administration, with 
a single Superintendent of Elections, and named for that position Dr. 
Frederick L. Marshall, of New York city. Dr. Marshall had so dem- 
onstrated his capacity as an executive of high type, that the Federal 
Democratic administration had retained him in office as a Collector of 
Enternal Revenue in the Third District of New York for more than a 
year after his term expired. By the economies he effected through re 
organization of that Department, he has demonstrated again the success 
of the policy of selecting Department heads on the basis of merit and 
efficiency. 


Distinguished Appointees for the New Industrial Commission 


At the outset of the administration, I reorganized the departments 
which dealt with the problems of protection for the workers of: the 
State. J found a complicated and disconnected system in effect consist- 
ing of a Labor Department, a Fire Marshal’s Department, a Work- 
men’s Compensation Commission of five members and an Industrial 
Board of four members, and reorganized these disconnected units into a 
gingle paid body of five members, the Industrial Commission. 

The duties then performed by the office of Fire Marshal costing 
approximately $125,000 a year are now completely taken care of in a 
amall bureau in the Industrial Commission. For the five appoint- 
ments of important commissionerships put into my hands by this reor- 
ganization, J named Mr. John Mitchell as Chairman; Mr. James M. 
Lynch, Mr. Edward P. Lyon, Mr. William H. H. Rogers and Mr. 
Louis Wiard. 

Mr, Mitchell had been appointed by Governor Glynn as a member 
ef the Workmen’s Compensation Commission. His long and enviable 
record as a fighter for the cause of social justice is widely known and 
appreciated. 

Mr. Lynch had been the Commissioner of Labor under the preceding 
Democratic administration. Mr. Lyon, Mr. Rogers and Mr. Wiard, 
known in their respective localities as men of broad and deep experience 
with regard to the questions between labor and capital, combined to 
make a Board in which the interests of both workers and employers, as 
well as the public at large, would receive just consideration. 


James M, Carter Put in Charge of the Prisons 


In the appointment of Mr. James M. Carter, as State Superin- 
tendent of Prisons, I followed again the policy of appointments for 
efficiency only. Mr. Carter is a master builder of Buffalo and an 

[14] 


executive of high standing among his business associates. His admin« 
istrative ability, no less than his expert knowledge of the building trades 
and construction costs, makes him, especially at this time when new 
prison construction is the uppermost problem of the Department, the 
exact type of efficient public servant for which I have consistently stood 
in every division of State work. 


Efficient Democratic Department Heads Retained 

In my treatment of efficient department heads whom I found in 
office when I entered upon the duties of Chief Executive, as well as 
in my appointment to oflice of the men selected by me to handle the 
large affairs of departmental business of the State, I have applied, at 
all times the test of merit and efficiency and in those cases where I 
found that test satisfactorily met by a Democratic incumbent, such as 
Dr. Hermann M. Biggs, in the Department of Health, Mr. Lewis F. 
Pilcher, in the Department of Architecture, Mr. William A. Mallery, 
Jr., as Fiscal Supervisor of State Charities, and Mr. Eugene Lamb 
Richards in the Banking Department, I have withstood all pressure 
of partisan politics wherever I thought that there was even a remote 
possibility of such partisanship impairing the efficiency of the State’s 
service. 
3 Reform in State Finance 

I entered upon the duties of my office with a clear understanding of 
the chaotic condition of State finance. I realized that the whole pro- 
cedure in this branch of State government was a survival of obsolete 
methods which had not been changed despite the enormous increase in 
both the volume and complexity of the transactions which it was intended 
to safeguard. 

The major part of my inaugural address was devoted to the urgent 
need of reform in State finance and the adoption of the best efficiency 
methods in administration. In that address I said: 


“At the present day the largest business in the country is that 
of government, and the magnitude of governmental operations and 
the number of governmental activities are growing by leaps and 
bounds; yet neither the United States nor the various State and 
local governments have organized the conduct of their several busi- 
nesses on any efficient plan, or have adopted any scientific system 
of accounting and auditing or of preparing a budget or financial 
program.” 


After indicating the rapid increase in the cost of State government 
and the various features of State finances which demanded correction, 
I said: 

“Until business-like methods. of accounting and. auditing are 
introduced and a scientific budget procedure is adopted, the officer 
[i544 


(meaning any responsible administrative officer) will at all times 
be handicapped and blamed or criticized for what he cannot 
control. | 

“Moreover the adoption of a sound financial system and budget 
procedure is imperative in order to enable the citizens of the State 
to take an intelligent and active part in State affairs and to enable 
the people to cooperate practically with the Legislature and the 
executive branches of the government. Without such a system the 
people cannot obtain the necessary information as to the conduct — 
of governmental affairs and cannot exercise the constant vigilance 
which is necessary to secure efficiency and economy in the public 
service.” 


When the first examination was made by this administration for the 
purpose of preparing the usual appropriation bills, it was found that 
four years of Democratic misrule had depleted the treasury of nearly 
its whole cash balance and had also failed to provide for at least ten 
million dollars of the appropriation needs of the then fiscal year. 

So that at the beginning I was confronted with a crisis in the State 
finances demonstrating the urgent need of beginning at once the retorms 
to which I had referred in my Snanoiral message. 

As the Legislature was already in session considering these matters 
for its own immediate action, there was no time nor opportunity for me 
to indicate in detail my views of the State appropriation needs. I did, 
however, during the thirty-day period following the adjournment of the 
Legislature inaugurate an intensive study of State finance and begin the 
work of reform in finance methods by a series of open public hearings for 
the consideration of the apropriation bills submitted by the Legislature. | 
To these hearings representatives of the principal civic bodies of the 
State were invited, as well as department heads and other State officers 
who could assist in an analysis of the figures. As the result of these 
hearings I vetoed appropriation bills of that year to the amount of 
$1,828,915.41 and reappropriation bills to the amount of $736,445.02, 
making a veto total of $2,565,360.48. 

As my second step in State finance reform I began in November, 
1915, the preparation of a tentative budget in scientifie form for sub- 
mission to the Legislature in the present year. In preparation for this 
tentative budget I caused to be analyzed and classified all of the appro- 
priation estimates of the departments and directed a careful investi- 
gation of the principal items of these estimates. Following these labors 
I summoned the department heads before me at public hearings and 
the tentative appropriation amounts to be recommended were arrived. 
at after public discussion. The tentative budget resulting from these 
hearings, together with an analysis of departmental estimates, making 


, [16] 


two volumes, together containing over a thousand pages, I submitted 
to the Legislature on January 5th with a message devoted exclusively 
to State finances. 

The principal features in the reform in State finance which I recom- 
mended were the following: 

1. A segregated State budget with expenditures scientifically classi- 
fied, so that the appropriations could be used only for the purpose 
intended when the appropriation was made, which budget should as 
nearly as possible in a single act include the appropriation necessary 
for the entire year of government maintenance. 

2. In order to do away with the confusion which made it prac 
tically impossible to determine the liabilities and commitments of the 
State at any one time, that all appropriations excepting those for con- 
struction work should begin on the first day of the fiscal year and 
lapse on the last day of that year. 

3. That all proposed appropriations should be considered and dis 
cussed in public. 

4, That the full control of all authorized expenditures of State 
money should be placed in the hands of the State Comptroller. 

5. That all other separate and independent fiscal units of State gov- 
ernment should be abolished. 

6. That all the State money should be placed in the custody of the 
elective finance officers of the State and remain there until actually 
disbursed. | : . 

7. That no contract of the State should be legal unless the certificate 
of the Comptroller be attached thereto to the effect that that money 
had been appropriated and was reserved for the purposes of the contract. 

8. That the State Constitution should be amended so that the contri- 
butions to the Sinking Funds of the State need not be more than their 
actuarial requirements. 

9. That the Constitution of the State should be amended to permit 
the Chief Executive to reduce as well as veto items of appropriations 
passed by the Legislature. 

I explained in my message to the Legislature on January 5th of | 
this year the importance of these reforms and how the proposed pro- 
cedure in regard to appropriations would make possible a complete 
audit and account control by the State Comptroller, and center respon: 
sibility upon administrative officers of the State for strict compliance: 
with the financial program represented by the appropriation acts. To 
assist the Legislature in carrying out the details of this program, I 
submitted not only the tentative budget and analysis of departmental 
estimates already previously referred to, but a number of legislative 
acts either wholly new or amending existing statutes. 

The Legislature accepted my financial program in all those features 
which it deemed could properly be put into operation the first year: 

[17] 


The segregated and scientifically classified budget passed by the Legis 
lature required between six hundred and seven hundred pages to print 
and included several thousand items which gave the purposes of expen~ 
diture in the most minute detail. With respect to this legislative appro- 
priation act, in my memorandum at the end of the thirty-day period I 
summarized its advantage as follows: 


“A very great advance is made in the appropriation Dill of the 
present Legislature over any previous appropriation bill in the 
fact that it is for the first time based upon scientifie expense classi 
fications which, for instance, separate expenditures for personal 
service from every other kind of expenditure, classifying mainte- 
nance and operating expenses under their proper subdivisions, 
preventing the use of those appropriations for more than one kind 
of expense, and giving opportunity to the State Comptroller for 
proper audit control. This feature of the act, together with the 
fact that all maintenance and operation and personal service 
expenses and all other appropriations except for repairs and con- 
struction become available on the 1st day of J uly, 1916, and lapse 
on the 80th day of June, 1917, go far towards clarifying a very 
great deal of the previous confusion and obscurity in State appro- 
priations. The bill, for the first time in the history of the State, 
makes complete provision for the maintenance and operating 
expenses of every department and activity of the State for the full 
year, a feature of appropriation the importance of which cannot 
be overestimated in future State financing.” 


A-joint resolution was adopted by the Legislature incorporating my 
recommendation with respect to sinking funds contributions. The recom- 
mendation that power be given to the Chief Executive to reduce ag well 
as veto appropriation items. was not accepted by the Legislature, but 
the proposal will again be submitted to the Legislature at its next session. 

This record in finance reform: is remarkable, especially in one respect, 
because, while most movements for the modernizing of either State or 
municipal financial conditions ordinarily require a campaign extending 
over several years before any degree of success is attained, as a. result 
of the action of the Legislature of 1916, alone, the major part of these 
plans have already been put in actual operation. 


The Pay-as-You-Go Policy 


Attention has been called, in the preceding, to the fact that, upon 
assuming office, I found a State Treasury depleted of its cash reserve 
and approximately ten million dollars of actual obligations accruing for 
public enterprises begun and not completed or for the maintenance of 

[18] 


known State activities which the preceding administration had either 
ignored or deliberately cut out of its appropriation program. A notable 
item of this sort was one of $3,654,000 which represented the excess 
of contract liability for Barge canal construction over the bond funds 
available for its payment. Another group of delayed or ignored items 
for building, construction and permanent betterments, aggregated 
$4,000,000. Grade crossing appropriations, ignored for several years, 
totaled $752,000; National Guard deficiencies and maintenance items 
—$340,000, a large amount of this total represented failure for several 
years to minke adequate appropriation for the support of National Guard 
organizations. ‘There was an item of deficiency in canal maintenance 
appropriation — $340,000, In respect to this item, the preceding 
administration deliberately ignored, in its appropriation for this depart- 
ment, its actual needs in salaries and wages to this amount. 

Other items, representing failure or deliberate neglect by the previous 
administration to provide for expenses of the fiscal year for which it was 
its duty to appropriate, are the following: 


Beret er te OT OR LONE 4.2 8 ge seg ke Wiech opin se ne 6 on 4 woh 24 0s $500,000 
RN ae Ie ae Sng aoe ne a Eno eg 465,000 
Deficiency for Pe a of Workmen’s Compensation 

MO ae ny TES ase Sip gi Sei Se agi a agile lg aiid oe ea ene 425,000 
Legislative printing BM os A ae oe NAc a Pn FARMS 300,000 
Indemnities for diseased animals slaughtered............ 432,722 
RrGrRCOwi? COMUCHINALION. GWaATd. > .. ec ce + 6 sive wies cess ees 80,000 


In addition to these failures to provide for obvious and pressing 
needs of government, the preceding administration had made another 
excursion into high finance with respect to the cash balance in the State 
Treasury. When that administration came into office there was approxi- 
mately $11,000,000 available in excess of liabilities. 

The Glynn administration thereupon proceeded to make appropria- 
tions in excess of the income resources of the State whereby this 
balance was exhausted to the extent that the State Comptroller was 
required to borrow $6,000,000 to meet the current expenses of govern- 
ment during the following mid-summer of 1915. 

The only apparent reason for this kind of financing on the part of 
the preceding administration was that the then Governor, who had 
obtained the office through the impeachment and removal of his prede- 
cessor, proposed to be a candidate for election and assumed that a lower 
level of legislative appropriations, regardless of how it was brought 
about, would be helpful in obtaining votes. 

No matter what the motives underlying the policy, it created a 
condition for the incoming Governor of being obliged to assume the 
distasteful burden of paying the debts of his predecessor or ecntinuing 

19 J 


the inherited system of bad finance, paying what little was. sa ome 
and passing all possible obligations on to the future. | 

I took a stand at once firmly for a pay-as-you-go policy. I insilstadl 
that it was financial dishonesty for the State to conceal the cost of 
government by dividing the appropriations for any activity or depart- 
ments between two legislative sessions where they could properly and 
intelligently be made at one time. I also took the position that further 
neglect to provide for the proper housing of the State’s dependents 
was a public wrong. I also took the position that the State was in 
honor bound to provide funds for the completion of such contracts as it 
had entered into with contractors upon the Barge canal and elsewhere. 
As already noted there was a deficiency in the item of Barge canal 
construction of $3,654,000. 

Although, at this time, the current expenses of the State, chargeable 
to the present adriinistration, were increasing in several items, notably 
contributions to Sinking Funds, a mandatory increase of $1,500,000; 
support of common schools, mandatory increases of $316,000; and 
other mandatory items of similar character, yet I felt that no matter 
what criticism might be brought against my administration it was my 
duty to see that appropriations were made to meet the future obligations 
which properly belonged to the first legislative session of the adminis- 
tration, and that the creditors of the State should know that the faith of 
the State with them would be kept. 

This was the first test of a pay-as-you-go policy which required the 
State to face its obligations, mostly inherited, and meet them as soon as 
those obligations could be ascertained. Naturally, a storm of Demo- 
eratic protest was aroused, particularly in the Democratic newspapers of 
New York City. This storm of protest was systematically accelerated 
with two purposes in view, first to obscure the acts of financial vandal- 
ism perpetrated by the former Democratic State office holders, and 
second to make political capital out of the increased appropriations of 
their successors which this vandalism had made necessary. 

Notwithstanding the outcry, however, the administration stood stead- 
fast with the result that today the Treasury of the State of New York 
(which in the first year of the administration was a borrower to the 
extent of over $6,000,000 to meet its current obligations) is now on a 
sound financial basis with ample resources to meet every dollar of 
Hability incurred or projected by the State in the appropriations of the 
Legislature ‘of 1915 and that of 1916, or by the Legislatures of pre? 
seding years. 


Story of Departmental Efficiency Told in Following Reports. 


In the foregoing I have given you a report of my own work and 
have told you something of the men whom I have named to fill the 
important departmental positions ofthe State. 

[ 20] 


In the following pages of this pamphlet I submit reports from these 
departmental heads. These reports I believe demonstrate the ability 
of these men to render you the same quality of service in governmental 
business which you expect in private business, and justify my judg 
ment in their selection. 

I believe in your interest that you want a continuation of this sort 
of teamwork and not a return to the conditions in this State that pre- 
ceeded my administration. 

These department heads have now reached the point where they are 
familiar with your business. If I am re-elected this teamwork will be 
continued ; if I am not re-elected many of them will be removed. This 
is the question you must decide. 

Taken together their reports show the results attained by an efficient 
organization working harmoniously for the good of the State. 

CuarLes 8S, WHITMAN. 


HIGHWAYS 


ROAD CONSTRUCTION RECORDS BROKEN, GRAFTING ELIMi. 
NATED AND THOUSANDS OF DOLLARS OF MAINTE. 
NANCE COST SAVED UNDER GOVERNOR 

WHITMAN 


Hon. Cuarrtes §. Wuitman, Governor: 


Str.— Highway improvement in New York State was commenced by 
a Republican administration in 1898, and conducted until 1911 under 
Republican auspices with such success that the United States census 
of 1910 showed that the valuation of the 22,000,000 acres of farm 
lands in the State had increased from 1900 to 1910 by three hundred 
and eighty million dollars, as compared with a decrease of eighty mil- 
lion dollars during the ten years preceding highway improvement. 

A comprehensive system of roads was planned; a systematic method 
of maintenance and repairs inaugurated and the work was rapidly 
progressing when a Democratic administration obtained control im 
1911 with the immediate result that 187 miles of road were built im 
1911, as compared with 430 miles during the preceding year, while 
maintenance and repair, which is recognized as a most vital part of 
the Department’s work, was entirely neglected. The history of the fol- 
lowing years of Democratic administration of the Department is a 
record of incompetency, inefficiency, extravagance and scandal. Over 
fourteen million dollars of highway money were diverted from the 
equitable apportionment provided by law and expended in favored 
localities, leaving important sections of the State entirely unprovided 
for. [21] 


I find that hundred of contracts were awarded upon plans prepared 
in such haste and with such disregard for requirements that cancella- 
tion of contracts amounting to over half a million do'lars were subse- 
quently found necessary, ‘and damage claims against the State for 
enormous sums resulted. Vast quantities of materials were used under 
specifications so drawn as to exclude competition. Many contracts were 
awarded for untried and previously unknown types of construction 
which speedily proved so inadequate as to necessitate changes at a 
large additional cost to the State. Contracts for over a quarter million 
dollars in one year were awarded without competitive bidding, and 
distributed among political leaders throughout the State. Favored 
contractors were paid extravagant prices one year for placing material 
which they were paid the succeeding year to remove. The administra- 
tive and engineering expense of the Department jumped from nine per 
eent. under Republican control to eighteen per cent. under a Demo- 
eratic regime. Insistent demands for campaign contributions were 
made upon contractors doing work for the Department, and the law 
prohibiting solicitation of campaign contributions from Department 
employees was flagrantly violated. 

An era of investigation ensued. ‘Twenty-two indictments were found. 
Convictions of guilty parties were obtained. Final payments amount- 
mg to one hundred and fifty thousand dollars have been withheld by 
the State for noncompliance with the specifications. 

No greater contrast can be imagined than that which is shown in 
sonditions as they now exist when compared with those which prevailed 
during that four-year period. 

By strict economy and eareful methods of administration and a rigid 
inspection of all labor and material, together with a constant insist- 
ence upon the full requirements of contractual obligations, I have tried 
to bring the State Highway Department to the highest point of effi- 
eiency; and instead of furnishing sensational headlines for the daily 
press, as was the case during the Democratic four years of administra- 
tion, to confine the Department to its lecitimate functions of rapidly 
imcreasing and properly maintaining New York’s great system of 
improved highways. 

The work of a great organization, such as the Highway Department, 
@onsists of a vast multitude of details. It is the culmination and com- 
bination of efficiency in all of these which tends to bring the general 
efficiency of the Department to its highest point, carrying with it a 
corresponding degree of inteerity. It is along these lines, and in con- 
formity with the standard which you demand of all State departments, 
that I am now endeavoring to conduct the Highway Department, by a 
thoughtful study of the requirements in the preliminary stages, the 
avoidance of the use of unknown types of construction and an orderly 
and systematic procedure in the work of the Department. 


[ 22] 


Under this administration expensive advisory boards and so-called 
experts have been dispensed with. Unnecessary and useless positions 
have been abolished; appointments have been made from Civil Service 
lists of persons who have demonstrated their ability for the work which 
they are to perform; and an efiiciency rating plan adopted which, 
instead of political influence, forms the basis of advancement of employ: 
ees. Savings to the extent of over $200,000 were made in the first 
year of the Republican administration of the Highway Department by 
the careful and thorough scrutiny to which all plans for highway 
improvement were subjected before final adoption, and by adaptation of 
the type of construction best fitted for each particular locality, taking 
into account the traffic and the availability of road-making material. 

For the first time in the history of the Department, proceedings have 
been taken to secure payment by bonding companies of losses sustained 
by the State through the failure of contractors to complete their :con- 
tracts. Civil actions have been brought, and damages in large amounts 
obtained for payments made upon work improperly performed. The 
selection of the highways to be improved is now being made solely with 
the view of completing so far as possible the original system outlined 
by law, instead of by arbitrary designations of roads without regard 
for State-wide necessities. Unimproved gaps are being filled as rapidly 
as possible with a view of providing a comprehensive system of through 
routes. 

During 1915 approximately 1,100 miles of first-class roads were con- 
structed as well as 1,070 miles of town macadam and gravel roads, while 
contracts for even a larger mileage are now in force and work progress- 
ing as fast as possible in view of the extraordinary scarcity of labor 
due to the European war. 

Special attention has been paid to the problem of maintenance and 
repair, and great economies have been effected in that Department. <As 
the result of a careful study of this problem, the appropriation asked 
by the Highway Department of the Legislature for maintenance work 
during 1916 was $30,000 less than the appropriation for 1915, notwith- 
standing the fact that the additional mileage of roads to be maintained 
during 1916 exceeded those for 1915 by a total of between 700 and 800 
miles. 

Plans for future conduct of the Department contemplate a reduction 
in the cost of maintenance and repair to the lowest point consistent 
with the proper up-keep of the roads, and a selection of the highways to 
be hereafter improved upon lines which will admit of the greatest 
possible development of through and State systems with the completion 
of main market thoroughfares for local needs. 

Respectfully, 
Epwin Durrey, 
Commissioner. 
[ 23 ] 


AGRICULTURE 


THE SCIENCE AND THRIFT OF THE WHITMAN ADMINIS- 
TRATION SUCCEED DEMOCRATIC WASTE 
AND INCOMPETENCY, TO THE GREAT 
BENEFIT OF THE FARMER 


Sion. Cuartes 8, Wuirman, Governor: 

Srr.— Coming into office April 5, 1915, as Commissioner of Agri- 
culture, I found that the State’s funds had been wasted on unnecessary 
employees and that confusion and lack of progress had prevailed in 
this department, as in the other State Departments during the Dix, 
the Sulzer and Glynn administrations. 

Yn accordance with your direction, I immediately instituted a pro- 
gram of economy and cut $70,000 from the pay-roll of the department, 
eliminating many employees. Through careful conservation of its 
forees, the department has been able to render the greatest aid to agri- 
culture despite the reduction in expense. | 

The support the administration has given to the agricultural schools 
and institutions which perform fundamental agricultural functions — 
which ferret out the causes of plant diseases that destroy our crops, and 
remedies therefor —is well understood and has brought forth the 
strongest kind of commendation from one end of the State to the other. 

No longer is there that feeling in the State that the attitude at 
Albany is for the breaking down of our agriculture, its institutions, 
our State and county fairs. The feeling was quick to spread that the 
administration was bending every effort to up-build and strengthen 
agriculture, and there is now entire confidence that this effort hag 
produced results. 

Ehere is now no laxity in the enforcement of the laws designed to 
protect the consumer against adulterated food, nor in the enforcement 
of any of the other agricultural laws, despite the fact that an extensive 
program for the development of our agricultural interests has been 
carried out. 

Yn the broad and generous support extended to agriculture, there has 
been official recognition of the truth that benefit to agriculture is prac. 
&cally benefit to all the industries of the State, and it is because of: 
this that so much has been done to foster it. +r 

That there was lack of confidence in this, as well as in other depart- 
ments, in the years of Dix, Sulzer and Glynn, was pretty generally 
realized. It was incumbent upon the Republicans to bring back that 
confidence, to raise the standards of service and efficiency. 

[ 24] 


Having placed its program of economy in actual operation, the 
_ department instituted a survey, the object of which was to deter 
mine what should be done in a constructive way for the benefit of 
agriculture. An agricultural conference was called and all interested! 
_ were invited to attend and express their views on remedial measures, 
and to make any suggestions they saw fit. Representatives of agri- 
- cultural societies, organizations and interests.to the number of one 
hundred attended. this conference. <A legislative program was mappec! 
out and a committee of six appointed to prepare recommendations to 
the Legislature. 

The bills, representing State-wide sentiment expressed at the con- 

ference, were introduced, a majority of them passed and were approved. 
Among the bills enacted were those providing for new buildings ama 
extensive improvements in the plants of our agricultural schools anc 
colleges. The farming interests well understand the value of the 
research work done in these institutions. It is in these that agri: 
cultural problems which have long held back our agricultural progress 
are solved. ‘The scientific methods by which the ravages of various 
plant diseases are checked and methods of prevention demonstrated, 
are worked out in these institutions, and ways and means of increasing 
production are discovered and made clear. 
_ The following liberal appropriations have been approved to thi 
end that this educational work may be extended: Geneva Experi: 
ment Station, $139,000.00; State School of Agriculture at Corneil, 
$579,000.00; Alfred University, $44,000.00; Morrisville School of 
_ Agriculture, $42,000.00; St. Lawrence School of Agricultura, 
$37,000.00; State College of Forestry, Syracuse, $123,000.00; Delhi 
Agricultural School, $48,000.00; Long Island Agricultural School, 
$83,000.00; Cobleskill Agricultural School, $85,000.00. In mosi 
instances, part of the appropriations were used for buildings and 
equipment for which funds had been refused in the two preceding 
administrations. 

Claims against the State for cattle and horses suffering from tuber 
culosis and glanders, which had been destroyed, dating back to 1913, 
were found by the new administration in the department. Failure 
to pay owners promptly for slaughtered stock had worked a serious 
hardship upon the farmers and retarded the cause of agriculture, 
An appropriation of $780,112.25 was approved in 1915 for the pay- 
ment of these claims, of which $482,722 was for claims from one 
to five years old, and in the budget of 1916 an appropriation of $235,000 
was granted to pay all current claims up to March ist of this year (al 
previous claims having been settled out of the appropriation of last 
year). These latter claims were settled promptly after the appropria- 
tion became available early in June, 1916, and the claimants were able 
thereby to purchase their new stock for use during the present summer. 

[ 257] 


For the protection of the farmer who sends his products to commis- 
sion houses for sale, the Department of Agriculture has taken active | 
steps. The commission merchants are required to file bonds, and in | 
eases where they fail to pay for merchandise handled the bonding com= 
panies are required to do so, Although the law was enacted several 
years ago, no provision was made for the distribution of money recov- 
ered on bonds until this year when a bill providing for such distribu- | 
tion was approved by you. Representatives of the Department investi- 
gate the financial standing of commission merchants and if not satisfactory 
a bond is required. The first case in which money was recovered on a 
bond since the law has been in effect was that of a New York commission, 
merchant, and the money was distributed to the producers in July last. | 

For the purpose of arousing the interest of school children in agri- 
culture, and to obtain records of value, a plan for an agricultural 
census to be taken by the children was carried out. This census will 
show the production of the State. It will show the weak agricultural 
spots and what is needed to develop them and make them as productive 
as they should be. New York is the first State to carry out such a 
plan and much interest has been shown by other States in the census. 
The government reports are based largely on estimates and for the first 
time the people of this State will know how many bushels of wheat, 
corn and oats are produced; how many horses there are in the State; 
the number of cattle, and other information of the greatest importance 
in the development of agriculture. 

An investigation has been instituted to determine the products ims 
ported into this State and the reasons why the State does not produce 
more of the enormous amount of farm and dairy products which if 
consumes. ‘This investigation is under way and as soon as it is coms 
pleted the Department will try to point the way to greater production 
by our own farmers. 

In the administration of Charles E. Hughes a definite State Fair 
improvement and development plan was conceived and partially carried 
out. During four years of Democratic rule the State Fair was 
neglected and financial support through State appropriations was 
refused. 

The Whitman administration has given active support to a move- 
ment for the further development of the enterprise, and has this year 
approved appropriations which total $213,000. The effect of this 
liberal program will be to stimulate this important arm of the State 
service devoted to the interest of agriculture. 

A campaign to reclaim the abandoned farms in this State has oem 
inaugurated. A bureau of the Department i is engaged in pointing out 
to-residents and owners’ of farms in other States the advantages which 
New York State farm lands possess, both of proximity to New York 

[ 26 ] . 


city, the greatest market place in. the world, the excellence of transpor- 
tation, and the adaptability of our soil for various crops, with the result 
that daily inquiries are made at the Department and in many cases 
farms are purchased. | 

Outbreaks of anthrax and rabies have been placed under absolute 
control and suppressed. 

Blister rust was discovered on the eastern line of the State, and its 
danger quickly recognized by experts of the Department of Agriculture, 
When this danger was explained to you, you provided for an emergency 
fund of $15,000 with which to eliminate it. 

~ The Gypsy or brown-tail moth made its appearance in Westchester 
county, threatened to spread over the entire State and do great damage 
to our trees. After a long battle against it, announcement was made 
that this destructive insect pest had also been conquered. 

The Department of Agriculture will continue its policy for the 

upbuilding of our agriculture. It will continue the work which has 
resulted in the restoration of public confidence and trust. Every effort 
will be made to keep the State free from costly and destructive plant 
and animal diseases. It will strive to people our abandoned farms, with 
resultant benefit to all of our industries. It will leave nothing undone 
in the way of showing methods by which our agricultural production 
may be increased. 
' This department has put in a great deal of time on the problem of 
the need of a proper State Market Department, which you so strenuously 
urged last winter. There is no doubt in my mind that the cost of living 
ean only be properly dealt with by such a Market department so created, 
a department that will at once assist the farmer up-state to get his 
products expeditiously and economically into the centers where they 
are consumed, a department which in the big centers like New York 
City will provide facilities which do not now exist and minimize the 
cost of handling and delivery and in other respects save the large exist- 
ing waste between the producer and the consumer. 

I recognize the fact that you have facilitated work along these lines 
by securing an appropriation for the present Department of Foods and 
Markets very much in excess of any previous appropriations approved 
by your Democratic predecessors. 

We are co-operating with the Department of Foods and Markets im 
this important matter and believe much headway has been made wits 
the public. We are very hopeful of important legislation in this 
matter next winter. 

Respectfully, 
Cuarues §. Witxson, 
Commissioner of Agriculture, 


[ 27] 


CONSERVATION 


STATE’S FIRST DEFINITE POLICY TO SAVE FORESTS, 
STREAMS AND LANDS ADOPTED BY GOVERNOR 
WHITMAN 


Hon. Cuarztes S. Wuirman, Governor: 

Srr.— Proceeding upon the broad general lines marked out by you, 
assisted by you in all things and hampered in nothing, my efforts have 
been directed toward putting into effect, for the first time in the history 
of the State, a definite wide-scoped policy of conservation of the great 
natural resources of the State. Although the time allotted has been 
briet, yet so much has been accomplished with your effective cooperation 
that it 1s incredible that any should dream of a return to the old 
conditions. 

All this has been made possible by a far-sighted view of the situation, 
taken when you assumed office. Then this important department was 
found to be hide-bound and inert. It was presided over by three 
political appointees whose purposes were solely partisan. No forward 
step could be taken by the commission unless by agreement of the com- 
missioners, Their backing and filling, their clogging of every progress- 
ive action through disagreement among themselves, is a matter of record 
in the reports of the commission. 

After your insistence had brought about legislation which abolished 
this expensive three-headed commission with the deputies, which cost 
the State $40,500 a year, you honored me with the appointment of sole 
Conservation Commissioner without restriction. You not only central- 
ized the power but you fixed the responsibility in case of a failure to 
earry out that which you had determined should be done. In so doing 
you reduced the departmental cost $26,500 a year. 


Forest Fires Scientifically Prevented or Fought 


In no department of this commission are the constructive policies, 
which you inaugurated, more apparent than in the Division of Lands 
and Forests, which has complete charge of State owned lands. This 
land embraces an area larger than the State of Delaware. The Division 
has jurisdiction over the fighting and prevention of forest fires in a 
territory greater than the two States of Rhode Island and Connecticut. 
Upon the maintenance of a forest cover on both the State and privately 
owned lands in the Adirondack and Catskill Mountains depends a con- 

[ 28 ] 


tinuation of the supply of water for turning the wheels of the State’s 
diverse industries. ‘Thus, the work of the Conservation Commission in 
forest fire protection may be said to come home close to the pockets of 
every citizen of the State. 

More effectively to prevent forest fires, every acre of both State and 
privately owned land within the fire zone has been examined during the 
last. year. to determine its character as to inflammability in order that 
plans may be made in advance for preventing forest fires or for fighting 
them if they develop. 

The working out of this system‘in one year for an area of more than 
four million acres has been a heavy task but one vitally necessary if the 
destruction of former years were to be checked and a definite systematic 
policy pursued. It has meant extending to this wide area the exact 
knowledge and control which every city fire chief has over his own 
restricted fire district. When a fire starts in New York City, the chief 
of the district knows not only the character of the building in which it 
is reported to be, but also the location of every hydrant and pipe line 
and the dangers in surrounding buildings. He knows in addition just 
how to fight that particular fire. This system of detailed efficiency has 
now been introduced into the fighting of forest fires. 

~ With your counsel and complete cooperation, I have advocated and 
put into effect, so far as was possible, a system of State-wide forest fire 
prevention to care for the woodland that is interspersed with agricul- 
tural land in all parts of the State. The Legislature embodied recom: 
mendations, made to this effect, in a bill which received your cordial 
approval and signature, and the Division of Lands and Forests has since 
been engaged in putting the plans into operation. 


Forest Destruction Prevented 


The keynote to an important work of this Department was sounded 
by you in an address before the Conference of Governors at Boston a 
year ago. It was that effective steps should be taken to limit the depre 
dations of lumbermen over vital water shed areas. Lumbering on priv 
vate lands has entered upon its last stage within the Adirondack Park; 
Railroads have been built into hardwood forests, still standing, that 
ultimately would end in their being completely destroyed. The high 
mountain tops that are privately owned and that are covered with dense 
stands of virgin spruce, of prime importance for the conservation of 
water and for scenic beauty, are being rapidly denuded. Only 48 pex 
cent. of these vital areas are now Stateowned but these important 
forested sections may be saved from further despoliation by the refer 
endum in November provided by the Legislature at your instigation 
to. authorize a bond issue of $10,000,000 for the purpose. 


[29] 


Reforestation Records Broken 


The work of reforesting denuded lands, both State and private, has 
jumped forward during the present administration to substantially 
double all previous records. Five million forest trees, raised in the 
five State nurseries, are being planted this year upon the State land 
in the Forest Preserve. In add:tion 5,000,000 trees are being dis- 
tributed this year to private land owners throughout the State, both 
in agricultural districts and in the forest counties for reforestation 
of waste and denuded private lands. In cooperation with the State 
Education Department, the scope of Arbor Day in the schools has been 
extended, until now the school children plant not two or three trees 
in the school yards, but acres of forest trees on their municipal water 
sheds or in other places where the public good is effected. res 

Asa result of the conference between you, the Commissioner of Agri- 
eulture and myself, an active campaign has been begun against the 
white pine blister rust which is creeping in from Massachusetts and 
which threatens to destroy all of the young white pine in once settled 
localities unless it is checked. Only the prompt Executive action in 
authorizing an emergency loan of $15,000 permits this to be done.. 


State Lands Rescued From Squatters 


It may be asserted here that the active assistance, which has enabled 
me, through the Division of Lands and Forests and with the assistance 
of the Attorney-General, to begin the work of the clearing of State 
land of illegal occupancy, constitutes one of your administration’s 
heaviest claims to the confidence of the people of the State. The Con- 
stitution provides that “the land of the State * * *  ghall not be 
leased, sold or exchanged or taken by any person or corporation” and 
decisions of the Attorney-General and the courts have held this to 
mean that permanent occupancy of these lands by any private individ- 
uals or corporations cannot be permitted. Moreover, the people have 
repeatedly registered their wishes in this matter during the last twenty 
years, when the question of leasing of camp sites has been before them, 
indicating through their representatives in the Legislature, and in the 
last Constitutional Convention, that they wished the lands of the State 
to be kept absolutely inviolate as wild forest lands. 

In spite of this express provision of the Constitution, which hag 
been so frequently reaffirmed, cases of illegal occupancy of State lands 
ateadily increased during the last twenty years until when I assumed 
office, there were 900 cases recorded in the Department with each year 
bringing its additional crop. The occupants were of all classes, from 
wealthy camp owners to the poorer Adirondack guides and residents, 


[30] 


who have been the main protection of the woods against fire. Ne 
Forest, Fish and Game Commission and no Conservation Commission 
had been found in twenty years with sufficient courage to undertake the 
enforcement of the plain provisions of the Constitution. 

With your approval, the method of attacking this problem has been 
personal and human. It was necessary that an abuse of twenty years 
standing should be ended quickly but at the same time without creating 
a condition of hardship upon those who were the victims, it might be 
said, of an immemorial custom. It was done in one calendar year. 
When announcement was first made of the determination of the Con- 
servation Commission to end the illegal occupancy, it was generally 
disbelieved. It was necessary to apply the pressure of the law on a 
few of the more flagrant cases. It was necessary to go into the woods 
and hold meetings with the guides and residents and discuss the policies 
of the Administration in this regard with them. Gradually it dawned 
upon all concerned that this campaign was neither in the interest of 
political adherents nor the usual empty play to the galleries. Then 
the counter pressure from those of influence commenced. | 

The campaign never faltered in spite of that fact. Nine hundred 
occupants of State lands were there illegally. Special agents were sent 
to practically every one of them to explain personally the purpose of 
the State. At the same time, they were told that they would receive 
reasonable time to vacate and would be allowed to take with them their 
buildings and other possessions. <A few at first voluntarily signed stipu- 
lations, then others followed until a veritable landslide of agreements to 
move flowed into the Albany office. A small number of the cases which 
the occupants contested upon some ground of doubtful title were 
referred to the Attorney-General for adjudication. Throughout all 
of the winter and spring and during the present summer the balance 
of the occupants have been moving under agreements which required 
them to be out during the present year. So satisfactory has been thig 
work that on August 1st there were only thirty-five cases, out of the 
nine hundred of a year ago, which had not been disposed of, either by 
stipulation to move or by reference to the Attorney-General for con- 
tested title, and these thirty-five are now in process of settlement. 


Fish Hatcheries Developed 


The number of persons who fish in New York State is difficult te 
estimate. or the conserving of this sport and for insuring the State’s 
food supply of fish, eleven fish hatcheries are maintained, which las# 
year distributed 645,000 fry and fingerlings, 

A promise for a further extension of this important Work wag 
redeemed when you secured from the Legislature authorization for the 


[ 31 ] 


building of a new hatchery at Dunkirk on Lake Erie, for the exclusive 
propagation of food fish. 

The State’s fish hatcheries are conceded to be superior to. those of 
any other State and equal in all respects to those of the National Gov- 
ernment. The detailed work of planting fish in the streams, however, 
has been haphazard not only in New York State but everywhere else. To 
check the loss from loose methods of planting and to make the product 
of the fish hatcheries fully effective in the waters for which they are 
destined a detailed study of all the fishing waters of the State has been 
instituted for the purpose of laying down working plans for their stock- 
ing and protection. This work will take several years since the streams 
have to be studied for the fish life that is in them, for the food supply 
of fish that may be introduced, for the best method of planting and for 
the elimination of the pollution that has caused the destruction of the 
fish in many of our finest waters. ‘This forward step has met with the 
enthusiastic endorsement of fish culturists of national prominence, and — 
has placed the practical work of fish culture in New York State upon 
a plane far above any ever before attained in the United States. 


Water Power Conserved and Developed 


The work of your administration in the conservation and develop- 
ment of the water power of the State will survive the life of any per- 
gon who may have participated in the task. 

Power possibilities on many of the rivers of the State have been 
wurveyed and plans prepared for their physical development during your 
administration. In addition a constructive policy of water power 
development has been worked out and placed on the statute books by 
the last Legislature, by which the State itself will benefit in the years 
to come. Thus, you have by your counsel and persistence effectually 
safeguarded for the State an immense potential force. You have 
insured the development of this as the needs of industry expand and 
you have guaranteed to the State by a system of compensation full 
financial returns for any benefits that may hereafter be derived by any 
municipality, by public or private enterprise. 


Saratoga Springs 


A greater number of people than ever before in recent years visited 
_ Saratoga this year and the return of this wonderful resort to its former 
position is rapidly becoming an accomplished fact. Your action in 
transferring the control of the State’s property in the State Reservation 
at Saratoga Springs to the Conservation Commission has enabled this 
to be done. It has permitted the conservation of its natural resources, 

its mineral waters B and its park area along definite, systematic, scientific 


[ 32 ] 


and has insured a rational administration of the property in the 
uture. 

-Your advocacy of a liberal allowance in the budget of 1916 for the 
development of the reservation and the appropriation of $152,000 
ther Boy secured, alone made this possible. 

Respectfully, 
GrorcE D. Pratt, 
Commusstoner. 


CANALS 


154 OF THE 290 MILES OF BARGE CANAL NOW OPEN, COM- 
PLETED DURING GOVERNOR WHITMAN’S ADMINIS- 
TRATION. GRAFT ELIMINATED, SCIENTIFIC 
METHODS ESTABLISHED 


Hon. Cuarues S. WuitTman, Governor: 


Str.— Barge canal construction was practically at a standstill when » 
you took office in 1915. The proceeds from the bond issue authorized 
by the Barge Canal Referendum Act of 1903, in amount, $101,000,000, 
had been practically exhausted and there were insufficient funds at hand 
to meet the obligations already incurred under contracts which were 
then in force irrespective of the need for the authorization of new con- 
tracts. The situation was that unless a sufficient amount to meet the 
monthly estimates earned by contractors was made available, all canal 
construction would stop. The State thereupon would have been sub- 
jected to claims by contractors for heavy damages, due to stoppage of 
their operations, and in the various sections where work was under way, 
the people would have lost the benefit from the work already completed 
and which had been paid for. 

An appropriation sufficient to permit the carrying on of the canal 
work until a new bond issue might be approved by the people was at 
once advocated by you. The possible effect of so large a charge upon 
the appropriations of the new administration was disregarded and 
although the situation was not of your own making, steps were taken 
at once to provide the necessary relief. A bill was passed and it received 
the Executive approval. It appropriated $3,654,000... The money was 
made immediately available for the canal construction work: 

Then the passage by the Legislature of a bill, to be submitted to the 
people, providing for authorizing a new issue of bonds, to the extent of 

[33 ]e 


$27,000,000, an amount deemed necessary for the completion of the 
vast project, was urged. It was approved. ‘The proposed bond issue 
was submitted to the people, favorably recommended and it was adopted 
by the electors by a substantial majority. 


Barge Canal Construction Speeded Up 


There was but a small portion of the Barge canal available for use 
when you took office. There had been completed a short stretch of canal 
east of Schenectady and about twenty miles of new canal on the western 
division and the northern half of the Champlain canal. Much work 
remained on what was known as the Waterford flight of locks 
and.'the route of the old Erie canal through Cohoes with its 
vexatious delays attendant upon the flight of the sixteen locks 
in that city still in use. With your approval, I announced 
my determination to place the new route in commission westerly from 
the Hudson river practically to Schenectady and was successful in 
doing so. The task was no small one, in that it involved considerable 
efforts to spur forward lagging contracts. It was on May 15, 1915, that 
the new Barge canal for a distance of twenty miles westerly from the 
Hudson river at Waterford was opened for navigation for the first time, 

The benefits resulting from this were considerable. It demonstrated 
to the people the possibilities of the new system. It also resulted in 
gaving approximately two days’ time to canal shippers by doing away 
with the annoyances and delays incident 'to passing through the so 
galled sixteens of Cohoes. 

The Oswego canal was opened for the first time in four years in 
1915. This provided a route for the water transportation of freight 
which had heretofore been closed. 

The administration in the closing days of the season of 1915 made it 
plain to all persons and corporations holding contracts for canal work 
that, irrespective of what might have been the practice heretofore, a 
strict compliance with contracts and the completion dates fixed in the 
gontracts on the various sections of the work would be enforced. The 
Superintendent, following out the policy laid down by you, insisted 
that at the opening of the season of 1916 every portion of the Barge 
ganal which by any possibility could be made ready for the use of 
boats should be placed in commission. In spite of obstacles which 
threatened the defeat of this administration plan, the State succeeded 
in throwing open to navigation in May, 1916, the entire stretch of 
ganalized river from the Hudson to a point near Little Falls. 

The hurrying forward of Barge canal work was not confined to what 
might be called the eastern part of the system. The Department of 
Public Works with its own foree completed the excavation of many 
parts of the new canal channel between Lockport and a poimt near 


e [34] 


Rochester and provided a uniform and suitable depth of water fer 
sganal traffic. Taking up the construction contracts on the Champlain 
ivision, strenuous efforts were directed towards placing in commission 
the new channel through the canalized Hudson river so that delays 
incident to the old route should be eliminated and a through Barge 
canal channel from Troy to Lake Champlain provided. The task 
seemed impossible in the time available. The effort however proved 
successful and at the opening of the present season of navigation ship 
pers were able to make use of the shorter route from the lake to the 
river. This proved of much benefit not only in the saving of time but 
also in making it possible for boats to carry larger cargoes than before. 
_ Similar methods for spurring on contract development were applied 
to the Seneca canal project with the result that about thirteen miles of 
this improved route, from the deepwater in Seneca lake at Geneva, 
have been thrown open for trafic. 
_ A summary of accomplishment under the Barge Canal Improvement 
Act shows that a total of 290 miles of Barge canal channel are now in 
use, of which 154 miles have been opened to commerce by the present 
administration. Sections referred to are as follows: 


Erie CANAL . 
Miles Miles, 
Waterford to Jacksono»urg (Mohawk river) ................08- 86 
Foy LR SEY SEG 0 19 ASO SS Ba HA AIS ag a VA VR greenery Nee eo 25 
Sr enn CEASEMUEEIICL Rg Ses ol rs. Wiehe este lay! cin a CREME. © in en nc nle oh oe 
184 
CHAMPLAIN CANAL 
Waterford to Northumberland (Hudson river) ...............- 26 
EMMETT OE ALTICEP TAP VY TLL CG ITIL 6 eg pore lc, a oa yc mig we! arade eresstn s te ues hy « 35 
a) 
OswEGo CANAL 
CEE IE RISO OWI orn Fete etic aa te wide ec erat Glee’ «bie ee were 6 32 as 
SENECA CANAL 
Geneva to a point beyond Seneca Falls.....................00. 13 18 
PIS, Sih Rika hia sees SMR Das evinhe etait eee tials Qwrs's: oiathas SOS 29¢ 


There might be added to this list the improved canal between Mud 
Lock and Baldwinsville, five miles, and between Three Rivers and 
Brewerton, ten miles, which, though completed, may not be used im 
connection with the main line of the canal but which has opened 
Oneida lake to canal traffic from its westerly end. | 

It will be plainly seen that there has been an earnest effort made 
to hasten the Barge canal to completion. Aside from the direct advan- 
tage to canal shippers of the new routes of travel, the placing of the 

[ 35] 


Mohawk river and the Hudson river in a condition for navigation has 
provided owners of boats, other than freight carrying craft, with oppor- 
tunities to visit localities of the State not heretofore accessible by water 
and there has been a corresponding benefit to the interior sections. 
The accomplishments of the Whitman administration in making avail- 
able for use the new sections thrown open to navigation within the past 
eighteen months have demonstrated to great manufacturing industries 
the possibilities of water transportation. 

Another evidence of administration interest in the waterways of nie 
State. was the approval in 1915 of. an appropriation of $300,000 for 
the purpose of making up a deficiency in the funds for maintenance 
and operation of the canals. The preceding administration, for polit- 
ical reasons, failed to provide for actual payroll needs to that-amount. 
This appropriation burden was unhesitatingly assumed. 


Efficient Operation Demanded 


With the beginning of the operation of the new Barge canal came the 
necessity for the highest type of mechanical and engineering skill. In’ 
place of the primitive equipment of the old canals, complex modern 
waachinery had been installed. The whole character of the canal from 
an operating standpoint was changed. ‘The canal was now a great 
modern engineering device, and its enormous original cost, together 
with the new and expensive type of operation called for, made impera- 
‘tive the application of efficiency and economy and the best business 
‘ability in operation, otherwise the operating cost would immediately 
have become prohibitive. 

The Superintendent of Public Works arranged with the Civil Serv- 
ice Commission for the holding of competitive examinations to test the 
knowledge and skill of all applicants for service. Every position which 
had any important bearing upon canal operation or the maintenance of 
‘Ms structures was placed in the competitive class. Appointments to 
these responsible positions were made from the eligible lists. The 
‘yesults obtained have been most satisfactory. 

The new locks are manned by men skilled in the mechanical trades 
and in addition to proper operation of the machinery entrusted to 
theirocare, they have been able to make needed repairs from time to 
time without added expense to the State. The change in the per- 
sonnel in this branch of the service has been much appreciated by 
ganal users. The navigation of the canals and the use of the locks 
have thereby been placed on a business-like basis. There is reason 
#o believe that at.the present time the lock organization of the Depart- 
ment of Public Works, man for man, is equal in ability to any similar 
force in the employ of any other Eentpontati pas or great business enter- 
prise. Every effort has been made by the State to attract to the service 

[ 36 ] 


ambitious young men and to insure a tenure of office to those found 
faithful and efficient. 

\ The Department of Publie Works has declined to permit even thé 
inor positions to be filled without an examination of the qualification 
the men seeking the employment. This course has resulted in secur 
a higher type of men for the work. Grades have been established 
through which employees may advance as vacancies occur. Every 
loyee has been encouraged to fit himself for advancement in the 
service. 

Efficiency in the highest degree has been sought. Employees have 
been encouraged by the offering of prizes for the highest standing both 
as to eondition of operating machinery and appearance of structure and 
grounds. The plan has proved successful. Mechanical parts have bees 
kept in perfect condition and many incidental improvements have beem 
made to the lock structures without additional expense to the State. 

Unnecessary employees have been eliminated from the service. Canal 
patrolmen have been done away with except in a few instances. The 
regiment of bank watchmen of former years has been reduced to a 
squad. No man has been employed unless there has been service td 
perform. Appointees have been compelled to give full time and atten< 
tion to duty. 


Prosecuting the Settlement of Claims 


The Legislature upon your recommendation abolished the office ef 
Special Examiner and Appraiser and placed the work of that official 
under the charge of the Superintendent of Public Works. There wae 
in existence in the Department of Public Works a Bureau of Claims, 
the work of which traversed practically the same ground as covered by 
the Special Examiner and Appraiser. Instead of appointing a new 
efficial to tha position, as was permitted under the law, the Appraiser’a 
work was consolidated with that of Claims Agent in the Department, 
and under this consclidation the employees of the Claims Bureau per- 
formed the work previously performed in the Department of Special 
Examiner and Appraiser. The expense of the latter department, abowg 
$22,000 a year, was thereby eliminated. 

Hundreds of claims against the State for land appropriated for 
Barge canal purposes existed early in 1915. ‘Steps were at once taken 
to make an adjustmert of all claims possible, and the settlement ef 
claims without recourse to the Board of Claims was encouraged. Where 
settlements could net be made direct, arrangements were made for s 
compromise of disputed points before the Court of Claims. The State 
made every effort to see to it that those from whom land had been taker 
by the State received the just and fair value of the property and with« 
out delay. | 

[ 37] 


Where the demands of claimants were excessive or doubts existed 
as to the State’s lability and satisfactory compromises could not be 
effected the State’s defenses have been carefully prepared and the 
claims pushed for trial before the Court of Claims. Complete evidence 
is at hand in each case noticed upon the calendar at the terms of court 
and there is not a single record wherein the trial of a case was post- 
poned by reason of delay on the part of the State or failure to prepare 
a case. There were 1,429 claims filed between February 1, 1915, and 
August 1, 1916, on account of the canals. Every claim has received 
study and investigation by the Department. 

There have been 276 amicable settlements with property owners cover- 
ing 309 parcels of land during the past eighteen months. Speedy 
justice and a definite decision is assured all who have a just grievance. 
All claimants have been notified that the State will not permit the 
indefinite running of interest charges against the State. The negotia- 
tion of a friendly settlement or a trial in open court on the issues 
involved has been the rule of the Department. 


Efficiency in Other Directions 


Many economies have been effected in departmental finances. A 
aystem of accounting of State property, patterned after the method 
used in the United States Army, has been installed. There have been 
frequent inventories of State property and a plan was placed in opera- 
tion whereby every article purchased could be traced from hand to hand 
wntil utilized in permanent construction or destroyed. There has been 
a material saving in waste and loss of State property. 

A considerable portion of the thousands of acres appropriated in 
eonnection with the Barge canal work is not in actual use by the 
State. The use of canal lands by private parties has been permitted 
enly upon payment of a fair rental and considerable revenue has been 
derived by the State. There was collected in 1915 from this source 
gad from the sale of sand and gravel on State land the sum of $32,325 
a3 compared with $20,000 in the previous year. ‘The indications are 
that the revenue from these sources will be much larger the present 
year. 

Canal property was opened to all who cared to make use of it prior 
® 1915. Laws were enacted upon my recommendation making it 
@ misdemeanor to trespass on State property without lawful’ 
guthority or to erect any building thereon or to remove from 
State land any materials or growing things without permission. There 
was also enacted a law making it a felony to interfere with or attempi 
& operate any of the locks, bridges or gates. These laws have been 
girictly enforced and the Stats will protect, through the department, 

‘3 rights in its own property. B lei depth of water is maintained 


‘in the waterways during the entire season. There has not been a 
single complaint as to lack of water on the Western Division during 
the present administration. The maintenance of a navigable depth 
n that section has been a serious problem in the past but rules and 
iegulations were adopted concerning the discharge of water from the 
canal so that complaints have been avoided. 

{fer improvements not directly connected with canal maintenance, 


but for which the canal was responsible, have been undertaken and com- 
pleted and the work paid for out of the regular departmental appropria- 
tions without seeking special funds from the Legislature. One instance 
which may be cited is the dredging of the canal and the slips at Buf- 
falo which had heretofore been permitted to fill to such an extent that 
boatmen were unable to approach near enough to the various docks 
to unload or receive cargoes. Over 80,000 cubic yards of material were 
removed. by the department in 1915 and miscellaneous repairs made 
to the canal walls in that city. 
Respectfully, 
Witt1am Wartace WorTHERSpPooN, 
Superintendent of Public Works. 


LABOR 


WISE AND WELL-CONSIDERED LAWS IN THE INTEREST OF 
WAGE-EARNERS MARK ADMINISTRATION OF 
GOVERNOR WHITMAN. ALL LEGISLATION 
HURTFUL TO LABOR VETOED 


Hon. Cuartes 8. Wuirman, Governor: 

Sir.— The acts of your administration in behalf of labor have been 
definite and effective. In your first message to the Legislature you 
called attention to the conditions prevailing in the Department of Labor 
and in the Workmen’s Compensation Commission, and asserted then 
that the departments were filled with unnecessary and incompetent 
employees, were failing of their avowed purpose, and required an im- 
mediate reorganization. 

Followed then approval of the bill for the creation of an Industrial 
Commission, consolidating the Department of Labor and the Workmen’s 
Compensation Commission, at the same time abolishing the position of 
Commissioner of Labor, the positions of Compensation Commissioners 
and the ineffective Industrial Board of the former Labor Department, 
which Board was wasteful of time and of money, and had become solely 

[ 39] 


* abt 
/ 

a tool of party politics. Thus at the outset it may be said that/not only 

was the wage-earner aided, but the administration affairs of the State 

goutralized and waste abolished. | / 2H 


Scientific Consolidation 


The Industrial Commission, with the advice of the Industrial Coun- 
ail, has made long strides in consolidating and reorganizing two great 
departments and administering the laws safeguarding the interests of 
the wage-earner, and provided for the payment of just compensation to 
injured workmen and their dependents. ‘The consolidated departments 
have been administered solely in the interest of all the people. This 
has only been possible by a wise and just Executive attitude toward 
legislation affecting this vital interest. 

It may be mentioned that important among these legislative meas- 
ures which must be credited to the Whitman administration are the 
provisions for the direct settlement of compensation claims. and pro- 
viding for advance payments by employers. ‘The experience of more - 
than a year in the operation of these laws has proved them to be of the 
greatest value to the wage-earner. Compensation may now be arranged 
between the employee and his employer by agreement without waiting 
for the long and sometimes tedious process of hearing by the Commis- 
zion follow ed by an award with the possibilities of appeal and other 
delays. All such agreements, however, are ‘inspected and carefully 
examined by the Industrial Commission to make certain that in no 
ease is an employee permitted to compromise his claim for Ne 
LESS than the full amount provided by law. 

The advance payment feature has also worked a creat dye aeee 
especially in the relief of distressing cases, and an employer may now 
make payment to his injured employee or dependent immediately and 
from time to time as necessity arises, the employer receiving full credit 
when an award is made for all advance payments made by him. In 
thousands of cases such advance payments have brought bread to the 
mouths of the hungering, saved homes for dependent families, where 
otherwise there would have been no bread and no home. 


Workmen’s Compensation Act Broadened 


The Act of 1916 amending the Workmen’s Compensation Law 
vastly strengthened and broadened the scope of that measure. It 
extended the operation of the law to cover many hazardous employments 
mot included in the former measure, and also changed the definition of 
the word “ employee” to bring within the law many classes of persons 
who had been excluded under decision of the court. 

I¢ also brought within the scope any person injured in a hazardous 
employment carried on by the State itself, or by any city or other sub- 

[ 40 ] 


ivision of the State. A section of the amendment of 1916 which will 
rk to the advantage of both employer and employee is that which pro 
viles for the system of optional compensation applying to all activities 
industries, whether hazardous or not. ‘This optional or’ elective 
system will enable employers and employees in the nonhazardous indus 
to bring themselves under the operation of the Compensation Law 
ill eliminate what has heretofore been a source of constant litiga 
Tt will tend to establish a just and equitable method of com 
ing employees who have suffered an injury in the course of their 
ent, whether that employment is defined as. hazardous or 


The courageous veto of the omnibus bill to amend the Labor Law dur 
ing 1916 should never be forgotten by the wageearner. It may be 
recalled that in your veto message you said: 


hile this proposed measure has some admirable foatiee 
nev a iieaad it contains other amendments which are so objection 
able and tend to break down and weaken the present law, that 1% 
is impossible for me to give it my approval.” 


The Whitman Vetoes 


This bill provided that under certain conditions women might be 
employed in the canneries for twelve hours a day and until as late as 
twelve o'clock midnight, for not exceeding twenty days in a season. 
That measure went the way of a similar measure the year before, 
throttled by Executive veto. 

There were provisions contained also in this measure tending to 
break down some of the safeguards in factories. Concerning that it 
was said that if there were to be any changes they should be in the 
direction of increasing rather than decreasing safeguards. 

Another veto of vast TRG related to a proposal to give to the 
old Industrial Board the right to suspend the enforcement of any 
mandatory provision of the Labor Law, such suspension to be effective 
until the next meeting of the Legislature. This bill was attacked by 
you as being not only unconstitutional in giving to an administrative 
board the power to suspend an act of the Legislature, but it was also 
pointed out that it would give to this Board a power which might be 
abused in many respects. 

Still another veto killed a proposal to exempt salt refineries from a 
provision that no person should be employed more than six days in a 
week. This was merely an instance of a specific industry seeking an 
exemption from a law fundamentally in the interest of the wage-earner. 

In the matter of appropriations the reconstructed Department of 
Labor has received not only sympathy but active cooperation in all 
cases. Appropriations for positions deemed unnecessary have been 

[ 41] 


struck out. In doing this the support of some employees and the'r 
friends may have been alienated, but there is no doubt that the great 
mass of people of the State who are coming more and more to under- 
stand that the business of the State should be conducted on economical 
principles and with the same regard for efficiency as in the case ef a 
privately managed business heartily approve every step taken. 

Economy, but with no loss in efficiency, has been the watchword of 
the administration, and it may be said that a saving to the taxpayers 
of $214,862 for the fiscal year beginning July 1, 1916, is indicated in 
the report to you from the State Industrial Commission. The several 
departments whose duties were taken over by the State Industrial Com- 
mission had asked for appropriations aggregating $1,616,120. While 
this amount was not appropriated, nevertheless the State Industrial 
Commission received $881,822.19 by legislative act to carry it over the 
rest of the fiscal year, out of which it saved $180,000. 

Based upon these expenditures for five months of its existence the 
State Industrial Commission asked for an appropriation of $1,252,410 
for the present fiscal year. As compared with the budget estimates of 
the consolidated departments prior to consolidation, this represents a 
saving of $363,710. As compared with actual expenditures of the old 
departments prior to consolidation, it represents a saving of $214,862. 
The effect of this economy upon efficiency may be well summed up in 
your own comments upon the report: 


“T believe that this has been accomplished by the Commission 
not only without impairment of the activities of the Departments, 
but with a’very great gain in efficiency, due to the consolidation of 
numerous bureaus and elimination of unnecessary detail.” 

Respectfully, 
JoHN Mironety, Chairman, 
State Industrial Commission. 


PREPAREDNESS 


STATE MILITIA BROUGHT UP TO FEDERAL STANDARD AND 
LEGISLATION SECURED IN WHITMAN ADMINISTRA- 
TION TO CARRY OUT PLAIN CONSTITUTIONAL 
PROVISIONS 


Hon, Cuartes §. Wurman, Governor: 


Srr.— The Constitution of the United States imposes upon the Con- 
zress the duties of raising and supporting armies and of provision for 
organizing, arming and disciplining the Militia. 

[ 42 ] 


‘\ Under the Federal Militia Law in force at the time I assumed office, 
there had been prescribed for the organization of the Militia of this 
State a tactical division. 

found that to complete the divisional organization would require 
the formation of 14 supply companies, 12 headquarters companies, 12 
machine gun companies, 2 additional field hospitals and 1 additional 
ambulance company. Pursuant to your direction and authority, all of 
these\units have been organized and are now fully uniformed, equipped 
and have received recognition from the War Department. | 

The Coast Artillery Corps of the State was short four companies. 
Two of these companies have since been organized and mustered inte 
the State service. The requisite number of men have been enrolled for 
the remaining companies and are soon to be mustered. 

We have organized 2 aero companies, a complete field bakery com- 
pany, 2 supply train and an armored motor battery. Through funds 
obtained by private subscription, the motor battery has been supplied 
with 4 armored motor cars, 8 auxiliary cars, 70 motor cycles and 8 
motor cycle trailers. The organization has been fully uniformed, armed 
and equipped, with the exception of machine guns for the cars, and has 
been inspected by the War Department with a view to Federal recog: 
nition. 

_ Chapter 793 of the Laws of 1913 directed that the Adjutant-Generai 

should organize and equip a colored regiment of infantry in the city of 
New York, such regiment, when organized and equipped, to become 
part of the National Guard of the State. No steps had been taken by 
prior administrations toward the organization of this regiment. Pur 
suant to your direction, this organization has been started and is well 
under way. It is to be known as the Fifteenth Infantry. Six com- 
panies have already been mustered into the State service, and the re- 
maining companies will be mustered as soon as the requisite number 
of men are enrolled. 

To complete the brigade formation of the Naval Militia of the State, 
I have provided for the organization and secured the equipment, since 
I have been in office, for 2 line divisions, 1 signal division and 1 marine 
company. Two aeronautic sections have been organized and equipped 
since January 1, 1915. Steps are under way to form 2 additional 
divisions, which will complete the Naval Militia Brigade Organiza, 
tion prescribed by the Navy Department. 

The Federal National Defense Act recently passed by the Congress 
of the United States, which became a law June 3, 1916, requires that 
the National Guard of the State be increased to approximately 36,00€ 
enlisted men. The provision is that “ The number of enlisted men of 
the National Guard to be organized under this Act within one year 
from its passage shall be for each State in the proportion of 200 such 
men for each Senator and Representative in Congress from such State, 

| [ 43] 


* * * and shall be increased each year thereafter in the proportion 
of not less than 50 per centum until a total peace strength of not 
less than 800 enlisted men for each Senator and Representative in 
Congress shall have been reached.”” When I assumed office, there were 
approximately 16,000 enlisted men in the National Guard of the State. 
At the present time we have a total enlisted strength of approximately 
26,500. 

I found, upon assuming charge of the office, a large number of claims 
and accounts against the State, aggregating thousands of dollars, which 
had been allowed to accumulate by previous administrations. Most of 
these accounts were for field exercises which had been undertaken dur- 
ing years when no appropriations were available and for which no pro- 
vision had been made for payment. Other accounts were for main- 
tenance items allowed by the Military Law, prescribed statutory allow- 
ances for organizations against which they had incurred obligations, 
but for which no appropriations had been made. Special appropria- 
tions were made by the Legislature of 1915 to meet these just accounts, 
and they have now all been settled. 

A deficit of $114,120.81 was found in the clothing allowance ac- 
counts, due to the fact that organizations had been allowed to draw 
clothing in excess of the Federal allotment, the deficit each year being 
eharged to the Federal allowance for the following year. This deficit 
was partially provided for by a special item of $30,000 in the deficiency 
bill of 1915. By changing the method of issue, placing it upon a basis 
of requisition for actual requirements instead of by allotment, the 
deficit has been entirely wiped out. 

One constant source of annoyance and difficulty to organization com- 
manders at the time I assumed office was found in the method then 
in foree of accounting for public property. Accountable officers were 
required by regulations to keep property accounts, but no uniform svs- 
tem had been prescribed, and there were as many different systems of 
keeping the accounts as there were organizations. At stated intervals 
they were required to prepare inventories and returns. The system con- 
templated that the returns filed should be checked with the property 
accounts in this office, and the accountable officer informed of any dif- 
ference, and proceedings taken, upon the receipt of inventory, for the 
adjustment of lost or the disposition of unserviceable property. I found 
that the property accounts were not in agreement; that returns had 
not been checked for several years. I prepared and put in operation a 
uniform system of property account, which combines, in one form, 
all that was formerly required by the account, inventory and return. 
The new form works admirably and is considered by accountable offi- 
gers a direct saving of at least two-thirds of the time formerly con- 
sumed in the preparation of inventories and returns. The new form 
shows, at all times, the state of accountability for each article of publie 

[ 44 ] 


operty, and in the ease of loss or unserviceability provides a prompt 
thod of disposition. The property returns of all organizations have 
béen checked during the past year. ‘The organizations have been re- 
heyed of all unserviceable, unsuitable and obsolete property, and the 
samme treated by survey proceedings, in accordance with Fejsral re 
quirements, and the State and organizations relieved of further account- 
ability and responsibility for the same. 
| 


Stivers Bill Enacts into Law Provisions of the State Constitution 


In y ur speech delivered in Buffalo early this year, you said: 3 
‘It is the compulsory training of the American youth that I 


advocate, holding it to be the one true base of the citizen soldiery 
idea.” 


In the same speech you declared flatly that you had no sympathy wit 
the outcry against compulsion, and you have frequently expressed your 
self, both in public speeches and in conferences with me on military 
matters, as being strongly in favor of universal compulsory service im 
time of emergency, holding that in such times, the volunteer system sent 
to war the most patriotic citizens, and permitted the “ slackers” te 
avoid the supreme obligation to country. | 

To write these convictions into the laws of the State, I have worked 
with the legislative committees having charge of military affairs, te 
frame and have passed bills which would cover two basic principles; 
the first, the enforced recognition of the obligation of universal military 
service for the citizens of our State in any time of military necessity ; 
second, to provide for the physical instruction and training of our youth, 
so that upon attaining the age of citizenship, they will be best qualified 
to assume the duties and obligations which are reciprocal! to the rights 
of citizenship. | 

The so-called Stivers bill which was passed as a result of that work, 
and which you approved on my recommendation, was merely the enact- 
ment into law of the provisions of Article 11, Section 1, of the State 
Constitution, which requires that all able-bodied male citizens between 
the ages of eighteen and forty-five years whe are residents of the State 
shall constitute the militia. 


The Military Training Commission 


~The law establishing the Military Training Commission, also 

approved by you upon my recommendation, after a public hearing, will 

result in the broadest and most universal application of the correct 

principles of physical training to the youth of our State, that can be— 

found anywhere in the world. Any charge that this bill will result in 

bringing to young manhood a elass of citizens who will be obsessed with 
[ 45 ] 


the ideas of militarism is utterly confounded by an examination of the ° 
terms of the bill. If the present Military Training Commission, or any 
of its successors, follow the provisions of this law to the utmost degree 
possible under the terms of the law, it will do no more than to bring 
the youth of our State to the age of citizenship, physically prepared to 
meet all the obligations of citizenship, whether for national defense im 
time of war or for the pursuits of peace. They will make for a better 
physical manhood, which, if ever necessary for upholding the honor of 
their country, will enable the coming generations of New York State 
to withstand the rigors of modern warfare. They will tend to a more 
virile manhood, a manhood which will stand out among that of nations, 
as strong, ever-enduring and a credit to the Empire State. 


Mobilization 


On June 18, 1916, the President of the United States called upon 
the Governor of New York to furnish for Federal service one battalion 
of signal corps; two battalions of engineers; one regiment, one squadron 
and one machine gun troop of cavalry; two regiments of field artillery; 
three field hospitals; four ambulance companies and nine regiments of 
infantry. This original call was later supplemented by calls for a 
supply train, an ammunition train, a pack train company, a field 
bakery company, two aero companies, one field hospital and one regi- 
ment of field artillery. 

When it is understood that the State authorities were required to 
assemble these troops at their home stations; recruit them to war 
strength; prepare the mobilization site for the reception of troops by 
the installation of a water system, erection of buildings, construction of 
latrines and baths; transport the troops from their home stations to the 
mobilization site; and to subsist and pay the troops from the date of 
the call to the date of muster into United States service, the magnitude 
of the undertaking becomes apparent. In addition the State authorities 
were required by the Military Law immediately to organize new units 
to take the place of those called into the Federal service. 

The organizations included in the original call were all assembled at 
their home stations within from two to eight hours after the receipt of 
the order to assemble by their respective commanding officers and were 
either mustered into the United States service or sent to the mobilization 
camp in accordance with instructions from the War Department. 

The place of mobilization designated by General Leonard Wood, 
Commanding General, Eastern Department, was Camp Whitman, Green 
Maven, Dutchess county, a site which had been acquired by the State 
for a farm industrial colony, but which had never been used for that 
purpose and, after an inspection and approval by regular Army officers 
appointed for that purpose, had been made temporarily available for a 

[ 46 ] 


ilitary' camp for mobilization purposes. The health of the troops 
assembled at this camp was better than in any previous camp of the 
National Guard. Valuable assistance was rendered by the State High- 
way Department in repairing roads in the vicinity of Camp Whitman, 
and by the State Health Department, in supplying typhoid vaccine for 
the \inoculation of troops and in furnishing experts for duty at the 

camp in connection with the water supply. All the problems of the 
_ mobilization were promptly and efficiently met by those charged with the 
duty of assembling the troops. 


Responsibility for Lack of Equipment Placed 


The problems presented by the recent mobilization have brought 
home to this Department, as well as to the Federal military authorities, 
and, in fact, to the people of the entire country, the points wherein ws 
must make broad and vital changes to bring our organization for 
national defense to the point of efficiency which has been attained 
abroad. It would be superfluous for me to call to your attention the 
details of these problems with which we were faced in this Department. 
We do know from the experience of the past year, that we must have a 
more efficient and active co-operation with the Federal military authori- 
ties when call for duty comes, 

As one example of the cooperation which must be secured, I would 
eite to you the matter of equipment. The Federal authorities had 
found it impracticable, prior to the call for mobilization, to issue to the 
State authorities more than sufficient property to equip the peace 
strength of our organizations. The President’s call carried with it the 
obligation to increase our organizations to war strength. The equip 
ment, under the law, had to come from the Federal government, and the 
fact that they had not previously allotted to us the equipment necessary 
for war strength numbers resulted in delays for which criticism wag 
levelled at both State and Federal authorities, 

Realizing, when I came into the office of Adjutant-General, that this 
situation was bound to arise and result in delay and confusion at the 
time of call into Federal service, I had sought to secure from the 
Federal authorities the necessary equipment for the war strength. Had 
this been done, the recruits who left our armories would have left them 
in the same uniforms and with the same equipment that was in the 
possession of the oldest enlisted man in any of our organizations. 

With the lesson before us of the delay caused by this one regulation, 
I am sure that this’ defect will be corrected before another emergency 
could arise. I quote this to you merely as one striking example of the 
problems which have faced this Department during mobilization, I ana 
satisfied that with the experience gained, these and other similar prob: 
lems will be promptly solved im the near future, 


[47] 


This Department faced, during the last few months, the first: call for 
Federal service in eighteen years. Under entirely new conditions the 
State of New York promptly met the call, assembled its troops within - 
twenty-four hours of the call for service, and sent to the border a force 

of more than 15,000 men ready for any service which they might be 
ealled upon to perform. It is a record in which the State. can justly 
take credit and satisfaction. 
Respectfully, 
Louis W. SToTEssury, 
~The Adjutant-General. 


PUBLIC SERVICE 


FIRST DEPARTMENT COMMISSION, ENTIRELY SELECTED BY 
GOVERNOR WHITMAN, WINS THE CONFIDENCE OF 
LABORING MEN AND FORESTALLS GREAT 
STREET RAILROAD STRIKE 


Hon. Cuaries §. Wurman, Governor: 


Srr.—A special and extraordinary service which the Commission of 
the First District has been able to render to the community since I 
became Chairman was in connection with a great surface railroad 
strike in the city late in July and early in August of the present year. 

The reason that we have been able to accomplish this result is that 
the membership of this Commission, made up as it is wholly of your 
appointees, is not hampered by politics or by any other considerations 
than a determination to serve the public. Because of this fact we have 
been able to command the confidence of the railway employees of this 
city and of their representatives, as these men have found that the 
power which we have to make public all the facts in a controversy 
assures them the support of the community so long as their acts are 
fair and just and within the law. We have also been able to convince 
the railway operators that they will be protected just so far as they lived 
up to their agreements and abide by the law. 

The city was confronted with a strike of all its surface lines 
which would have materially paralyzed the community and imposed 
pn our people incalculable discomfort, hardship and dangers. 

The Commission, although erat power to arbitrate, or to fix the 
compensations or hours of labor of employees on the railroads within 
the municipality, had authority to inquire as to‘conditions in the event 
of failure of the railroads to operate under their franchises and under 
the service schedules established by the Commission. 

[ 48 ] 


The strike began on the Yonkers and Westchester lines and extended 
“to the Union Railway in the Bronx and then to the entire Third 
“Avenue system, afterwards to the lines of the New York Railways 
and to the Queens and Staten Island lines. The Commission on August 

1st, when the strike had involved the Bronx lines and before it had 
affected the New York Railways and its associates, began an inquiry 
into the facts leading up to this industrial disturbance. Because of tha 
impartiality and fairness with which this inquiry was conducted, the 
Commission from the start won the confidence of both the labor leaders 
and.the railway operators to the extent that the representatives of all 
the railroads already under strike, and those where strikes were impend- 
ing, and the representatives of the strikers and of organized labor, con- 
sented to come together under a procedure which had been planned by 
myself as Chairman of the Commission and agreed to by my associates. 

The Mayor, joined with me, and together, acting as friends of both 
parties in the controversies, we brought about an agreement with the 
Commission as an agency of record which stopped the strike, returned 
to work those who had already gone out, and referred all matters in 
dispute to informal conference and, if that failed, to arbitration. At 
the time this result was accomplished the strikes already inaugurated 
had practically paralyzed the railroad systems affected. 


Subway Construction Strike Settled | 


Another industrial situation in which I was able to be 
of service to the community occurred early in the present year, when 
a strike was threatened on all the subway construction work now under 
way in New York City, and was actually declared on part of it. The | 
direct financial loss to the city of any delay in the progress of this work | 
would have been very large and might have been followed by great | 
injury to the work already partly or wholly completed. Both the con- 
tractors and the employees in this controversy accepted my services ag 
advisor in the dispute, and it was settled promptly to the satisfaction 
of both sides under an agreement which will continue until the construc: 
tion work now under way is completed. 


Public Confidence Restored 


With respect to the routine work of the Commission, I was able 
from the beginning to put in operation those good government policies 
for which you stand and to carry out which you chose myself and my 
associates, 

We started at once to put our house in order and to try to recover for, 
the Commission the confidence of the public which had been seriously 
impaired by the methods and measures of the preceding administration. 
Although our service has been short, I am satisfied that we have made 

[ 49 ] 


substantial headway in this respect and have accomplished at once your 
declared purpose to take the Commission of the First District out of 
politics and make it solely an agency to compel fair dealing and proper 
service on the part of public utility corporations within our.jurisdiction. 

I have to report in this respect that since the Commission has been 
made up wholly of your appointees, every one of its official acts has been 
the. unanimous: act of the Commission. Complete harmony has been 
possible because each member has had only one purpose in mind, and 
that was honest and loyal service to the public. 

We found the Commission from one to two years behind in its work, 
and absolutely unprepared with respect to a proper accounting system 
for its future great duty as a partner in the dual subway operation. 
We have practically caught up with the work in arrears and done a 
large amount of the work preliminary to the installation of a general 
accounting plan. 

A revision of the uniform system of accounts for railroads, electric 
and gas companies has been undertaken which when completed should, 
establish the standards for this form of accounting for all the Public 
Service Commissions of the country. 

In our work for improved transit conditions, through our regula- 
tive authority we have based our demands on fairness to the corpora- 
tions as well as to the public. 

Respectfully, 
| Oscar S. Srraus, Chairman. 
Public Service Commission, First District. 


HEALTH 


MORTALITY LOWERED AND STATE-WIDE EFFICIENCY 
INCREASED BY GOVERNOR WHITMAN’S UNCEASING 
LABORS IN BEHALF OF THE STATE DEPART- 

MENT OF HEALTH 


Hon. Cuartes 8S. Wurman, Governor: 


Srr.— The work of the State Department of Health has assumed 
pach proportions as makes it a difficult matter to bring within reasonable 
fimits a comprehensive summary of all lines of activity. Soon after the 
keorganization of the department we ventured: to predict that 25,000 
fives could be saved in New York State outside of New York City 
fithin a period of five years, provided only that adequate support wag 
Eiorded by the Governor and the Legislature. The feeling was perhaps 

[ 50] 


Pee enough among those who are not familiar with modern public 
‘health work that any such prediction was a mere guess, or the expression 
‘of a hope, and was not founded upon scientific facts. Such an assump- 
tion, however, is far from being the truth, for it has been shown very 
clearly that the prediction is justified. In 1915, so many low records 
in the amount of sickness and death in the State were established that 
the result cannot fail to be considered most significant. The number 
of lives actually saved outside of New York City, as compared with the 
death rates for the three years preceding 1913, was approximately 4,000. 
The death rate for 1915 was the lowest in the history of the State. 
There were nearly 2,000 less deaths from the more common forms of 
communicable disease in 1915 than in 1910, notwithstanding an increase 
in population of nearly 300,000 during this same period. The total 
death rate, the infant mortality rate, the death rate from tuberculosis, 
typhoid fever, scarlet fever, diphtheria, measles and whooping cough 
were the lowest in the history of the State, and we cannot well avoid 
the conclusion that these reductions have been the result of the intelli- 
gent and vigorous application of scientific measures for the prevention 
of these diseases. 

The courageous support of the work of the State Health Department 
by the Whitman administration resulted in substantial concessions being 
made by the Legislature in the appropriations of the present year. For 
years the Department laboratory has been housed in an old remodelled 
stable with “lean-tos” added, with quarters that are much congested 
and where the work is conducted with great difficulty and at great risk 
of fire and constant danger to the health of the workers. As it is only 
through extensive and effective laboratory work that the principal bene- 
fits of the Health Department of the State can be extended to the 
suburban and rural communities, those being districts where no labora= 
tory facilities are available, there was an active effective interest in the 
project for a new laboratory. During the appropriation period of the 
present year you advocated, and promised your approval of, an appro- 
priation for a suitable laboratory if the Legislature would consent. Ag 
a result an authorization of $100,000 was passed this year and signed 
for a new laboratory building, of which $25,000 was made immediately 
available. 

A suitable site for this laboratory has been selected in the city of 
Albany in a location favorable for cooperation with other departmente 
engaged in similar work and far removed from the residential centers. 

The importance of a laboratory to the health of the State may be 
anderstood when it is realized that from it is distributed to the physi« 
cians of the State all of the antitoxins and vaccines which are used i 
modern medical warfare, and that in a laboratory are also made exam« 
inations for the diagnosis of disease from material submitted by the 


[51] 


physicians for culture. In addition, a‘ laboratory is the center for 
research work and for the study of abnormal and. unusual. disease 
manifestations which may develop throughout the commonwealth. 


State-Wide War Against Infantile Paralysis 


We are now dealing with a serious situation which presents. prob- 
lems both unusual and extraordinary, arly in July of this year the 
State of New York faced the most extensive epidemic of poliomyelitis 
in history. The need was apparent for prompt and effective measures 
requiring large and unusual expenditures to provide competent physi- 
cians and nurses to deal with many cases of the disease. 

Through your wise action in providing an Emergency Fund to be 
expended as needed, the handicap under which we were laboring — 
lack of a sufficient ‘number of Sanitary Supervisors — was removed. 
Branch offices have been established at Roslyn and at Middletown, 
N. Y. Trained diagnosticians, bacteriologists and nurses have been 
provided so that at this time the Department has a field force of such 
size and competence as to make it possible for it effectively, to cope 
with the epidemic. 

This, however, has been made possible by the hearty support ac- 
corded by the Governor, the State Comptroller and the Civil Service 
Commission. 

But even with the epidemic under control, our work is by no means 
finished, for in the wake of this disease are left hundreds of children 
doomed to go through life permanently crippled unless proper remed- 
ial measures are taken. I am, at this writing, making arrangements 
to retain the services of an eminent surgeon who will organize clinics 
throughout this State so that the. medical profession at large may 
become familiar with the methods necessary to prevent deformities 
in convalescent cases. It will also. be necessary to enlist the services of 
a corps of nurses trained in the care of such cases, so that those of our 
people who are unable to bear the expense of expert medical attention 
and skilled nursing care may secure the same treatment as those more 
fortunately situated. 


Other Phases of the Progress in Health Department Work 


An important phase ‘od the work of the State Department of Health 
has been its endeavors to bring home to the people of the State, both in 
urban and rural communities, “Ne methods by which sanitary improve- 
ments can be made so as. ‘to diminish disease and death, This has been 
accomplished ina, large way. by the.use,.of exhibits, charts, diagrams 
and models. accompanied by. a trained nurse, which have been shown 
throughout the various communities.of the State, particularly. demon- 

[52] 


strating how the enormous death toll of children can be reduced and 
giving particular attention to those subtle diseases which affect persons — 
of more mature years, and those recessary sanitary measures which 
should be taken in the more rural districts for safeguarding the milk 
and water supplies and for the prevention of communicable diseases. 

One of the results of this activity has been the appreciable diminution 
in infant mortality — the number of deaths of infants under one year 
of age per thousand births durizg the year has diminished from 120 in 
1913 to 99 in 1915, and there has been a constant diminution for the 
first. six months of the year 1916 compared with the first six months 
of the year 1915. 

The Department has also been enabled to enforce the Vital Statistics 
Law, as it believes that vital statistics is the fundamental basis of deter 
mining whether sanitary measures bring about the results for which 
they are enacted. 

The Health Department has also rendered what service it could te 
the other Departments of the State government, especially cooperating 
with the Department of Education in administering the law requiring 
the medical inspection of school children and in advising with that 
Department regarding various matters of school hygiene. 

‘Many intricate problems have come up in regard to sanitation and 
the disposal of sewage from the various institutions of the State, and 
the Department has acted in hearty cooperation with the Department 
of Agriculture, the Hospital Commission, the Prison Commission and 
other Departments who have in their administration the control of 
the various State institutions. 


Department Work at Mobilization Camps 

Only recently the Department offered its service to the Militia of 
the State, which as soon as it had been mobilized at Camp Whitman 
was furnished with a sufficient amount of typhoid vaccine so that all 
unvaccinated soldiers and new recruits could be promptly immunized. 
In addition the Department sent a water analyst engineer to the 
Camp, who made an immediate survey and recommendations as to 
the method by which an adequate and safe water supply could be 
obtained. A bacteriologist was stationed at the Camp, who made a 
careful examination of the water and who also examined a large num- 
ber of soldiers, engaged in the preparation of food in order to detect 
the presence of typhoid carriers. This work met with the hearty 
zpproval of the commanding officer and the Adjutant-General. 


An Aid to the Department of Agriculture 
There has also been energetic cooperation between the Departments 
of Health and Agriculture, and insofar as has been practicable the 
laboratory facilities of the Department have been made available for 
[ 53 ] 


? 


the Department of Agriculture in the examination of foods and in the 


‘ making of special investigations for the control of anthrax.; The De 


partment of Agriculture has also been interested in having the Depart- 
ment of Health make use of the State and county fairs for the purpose 
of disseminating sanitary information to the many thousands of people 
who annually visit these important institutions. 


Governor Whitman Successful in Placing Quarantine under Federal 
Control 


Although officially not within the scope of this Department’s juris- 
diction yet any report on the constructive work for the general health 
by your administration would be incomplete if reference to your far- 
sighted act of transferring the burden and responsibilities of main- 
taining a quarantine station and health officer at the Port of New 
York, to the Federal Government, were omitted. By this the United 
States Public Health Service is enabled to exercise a purely Federal 
function and the State is relieved of a constantly increasing expense. 
An excerpt from your message to the Legislature, January 5, 1915, sets 
the date when active, effective effort to bring about this result was 
mitiated : 


“IT recommend, for the same reason (that it did not represent a 
proper State function), that the office of the Health Officer of the 
Port of New York be abolished as soon as arrangements can be 
made for the carrying on of these duties by the Federal govern- 
ment.” 


This recommendation was supplemented by a legislative bill pre- 
pared at your request which was passed and signed. The act provided 
for a commission to transfer the Quarantine Station and the service of 
the Health Officer of the Port of New York to the United States 
authorities. This will be done without expense to the State. 

The future needs at the Quarantine Station and at the hospitals on 
Moffman and Swinburne Islands are very great and extensive improve- 
ments must be made. 

If the station and hospitals had continued under the control of the 
State a very large investment, probably in excess of $1,500,000 of State 
money would have been required within the next two years. This in 
itself was an important reason for transfer to Federal control at the 
present time because the expense would have been a heavy burden upon 
the State, and it was recognized that the State had urgent calls upon its 
treasury for purely State activities, rather than for investment in the 
plant of an activity which was almost exclusively Federal in character. 


[54] 


History of the Movement to Federalize Quarantine 


In 1892, a number of physicians in New York city, members of the 
New York City Academy of Medicine, realized the dangers that existed 
at the Quarantine Station at Staten Island and felt that it would be a 
wise procedure if the quarantine of New York State at the Port of New 
York were in the hands of the Federal Government. Efforts were made 
by the Academy of Medicine and other bodies for a period of years to 
accomplish this but without suecess. The position of Health Officer of 
the Port, a highly important one, has been the target of political 
eriticism at various times. Five years ago a vicious and unjust attack 
was made upon: the then Health Officer of the Port, Alvah H. Doty, M. 
D., with the final result that he was removed from office in order to 
make place for one of a different political complexion. As a result of this 
political activity, New York City physicians again interested them- 
selves and carried on a steady and efficient campaign, enlisting the 
sympathies of various other organizations in New York, and presented 
the matter to the present administration during the first year of its 
incumbency. 

Upon complete investigation of the facts by you it was learned that 
the Public Health Service of the United States, under the direction of 
the Secretary of the Treasury, had gradually acquired the control of 
quarantine at the various ports of the United States until, in the year 
1915, there remained only the ports of Boston, Baltimore and New 
York. During that year Boston was added to the Federal quarantine. 

~The number of immigrants coming into the port of New York far 

exceeds that coming into all the other ports together. The danger of 
admitting disease consequently is here greatest and one which affects 
not New York State alone but the country asa whole. It seemed, there- 
fore, that all the States should contribute rather than place the burden 
of expense wholly on the State of New York. 

For this reason it was successfully urged that the above mentioned 
bill be enacted into law. 

A representative of the Public Health Service of the United States 
was then appointed as Health Officer of the Port, thereby placing quar- 
antine practically within the control of the United States government 
in the spring of the present year. 

Respectfully, 


Hermann M. Biaes, M. D., 
Commissioner of Health. 


[55] 


ELECTIONS | 


THOUSANDS OF DOLLARS OF STATE APPROPRIATIONS 
SAVED AND EFFECTIVE ENFORCEMENT OF THE 
LAWS ACCOMPLISHED UNDER GOVERNOR 
WHITMAN 


Hon. Cuarxtes 8. Wuiraan, Governor: 

Sir.— Under Governors Dix, Sulzer and Glynn the salaries and 
expenses of the State Department of Elections were $349,900 per year. 
There were three State Superintendents of Elections, three Chief Dep- 
uty Superintendents, one hundred and seventy-five Deputy State Super- 
intendents, and four hundred temporary deputies. 

Under the Whitman’ administration the salaries and expenses of the 
Department were $196,240 a year. ‘There is only one State Superin- 
tendent, one Chief Deputy Superintendent, eighty-three Deputy State 
Superintendents and one hundred and fifty temporary deputies. 

There was a net yearly saving to the State, as compared to the preced- 
ing Democratic administration, of $153,660. 

This saving to the State has been accomplished because you ordained 
that the Department of Elections should be operated on a business-like 
basis and not as a corner in the State administration where jobs are to 
be provided for party workers. 

The saving to the State has not curtailed the efficiency or impaired 
in the slightest degree the serviceability of this division of the State 
government. | 

It is another demonstration of the contrast between Democratic and 
Republican administrations as conducted in Albany. 

There existed a tripleheaded, inefficient commission in the State 
Department of Elections when you came into office with intimate 
knowledge of election abuses gained in the District Attorney’s office 
in New York county. Immediately a bill to do away with this expensive 
form of departmental administration was favored. A law was passed 
by a Republican Legislature and approved, under which I had the 
honor to be appointed State Superintendent of Elections. 

A speedy reorganization of the Department of Elections was brought 
about. The facts indicated above show what has been accomplished for 
the “man who pays the bill.” 

Three State Elections Superintendents received $5,000 each per 
year under the Democratic Governors; three chief deputies received 
$4,500 each per year. Under the present Republican administration — 


[ 56] 


the one Superintendent receives $5,000, and the one Chief Deputy 
receives $4,000 per year. 

The Democratic administrations made the senatorial district the 
basis for operation throughout the State; the Whitman administration 
has made the judicial district the basis. Work formerly accomplished 
by six or seven deputies is now looked after by one, the latter appointed 
because of efficiency rather than political expediency. 

Deputies are now held to strict accountability for the section in their 
charge. The actual performance of honest effort to the State is greater. 

The Democratic administrations maintained twenty-five branch 
offices and three main offices. ‘The number of branch offices is now 
reduced to seven and the main oflices to one. 

The. basic principle on which rests the value of the Department to 
the State is the challenge list. <A challenge list is only as strong as 
the aceuracy of the compilation. Sixty-eight per cent. of the names on 
the challenge list for 1913 voted; seventy-two per cent. of the challenge 
list voted in 1914; only six per cent. of the names on the list for 1915 
attempted to vote. This was brought about with one-third of the force 
utilized under the Democratic administrations. 

Over nine hundred “ convenient’ voters were stricken from the 
registry lists in New York last year, where the men had registered from 
police station houses, Turkish bath houses and fire houses. ‘The courts 
held that these places could not be held as legal residences. 

Fifteen or twenty election boards were removed for dereliction of 
duty at primary elections because they did not pay close attention to 
challenges. This had a salutary effect upon inspectors generally. 

In 19138, with fully three times the number of deputies, there were 
284 arrests and 16 convictions. In 1914, there were 160 arrests with 
30 convictions, and in 1915 there were 172 arrests and 43 convictions, 
with between thirty and forty cases still pending. 

Respectfully, 
Freprerick L, MarsHatt, 
State Superintendent of Hlections. 


CIVIL SERVICE 


TRUE REFORM INSTITUTED AND MERIT THE TEST FOR 
STATE EMPLOYEES IN WHITMAN ADMINISTRATION 


Hon. Cuartes 8. Wurman, Governor: 

Srr.— When the Whitman administration went into office January 
1, 1915, it found a Civil Service Commission, the record of which was 
one of wholesale disregard of the constitutional and legal rights of the 
State’s employees. The whisper of the ward boss was found more 

[ 57 ] 


potent in appointment and promotion than the standing of the candidate 
in an examination. The doctrine of promotion for efficient service had 
been disregarded in many eases, in favor of the doctrine of promotion as 
a political reward. An inferior class-of workers presented themselves 
for examination to enter the State’s service as a result of this situation. 
The better class of workers would not waste effort in a contest which 
was not to be decided on merit. Employees already in the State’s 
service received little or no encouragement for the energetic perform- 
ance of duties, wherever political influence interfered in favor of 
another. 

It required only brief consideration to find that this condition in 
the Civil Service of the State was one of the fundamental defects under- 
lying all the mismanagement and political spoilsmanship in the four 
years of Democratic government which produced a procession of three 
Governors in two terms — Dix, Sulzer and Glynn. From this condition 
had come the vast overloading of departmental and institutional service 
of the State and the padding of the payrolls with political favorites who 
appeared in the office only on pay day. Department heads of the 
Whitman administration as fast as they took office were able to strike 
off the payrolls thousands of dollars which had been wasted in the 
previous four years for political payroll purposes. 

In seeking the vital defect in the organization of the State’s business, 
it was found most conspicuous in the administration of the Civil Serv- 
ice and immediately steps were taken to affect a reorganization of the 
Commission. This reorganization was possible because of the policy 
laid down by you at the beginning. It is the only platform upon 
which men genuinely attached to the cause of Civil Service reform 
may take office. 

Real Civil Service reform, it was announced then, demanded as its 
representatives men who would be entirely above and beyond all 
demands of partisan politics, men who would apply the principles of 
Civil Service in the spirit of the Constitution and the law; men who 
would conduct the office from which should radiate the real efficiency 
of the State’s entire business organization, to the same degree shown in 
a highly organized private business. 

Having selected your Commissioners you aggressively supported them 
in each and every move they made to administer not only the letter but 
the spirit of the law. This support and the courageous energy which 
it engendered increased by a definite percentage the efficiency of the 
employees of the State who are in the Civil Service classification. It 
gave to them the assurance which had been lacking the previous four 
years, that merit and industry would be recognized. 

The Annual Report of the Executive Committee of the New York 
Civil Service Reform Association sums up the twenty months’ accom- 
plishments of your administration impartially and authoritively in these 
words: [ 58 ] 


“The conclusion is that under Governor Whitman, the merit 
system has steadily advanced and been generally restored to its 
proper place in the State Government. It is generally understood, 

_ throughout the State, that the Governor will support the principles 
of the merit system and there is evidence that respect for and 
compliance with the Civil Service Law has been correspondingly 
increased.” 

Respectfully, 
SamuEL H. Orpway, Chaurman, 
Cwil Service Commission. 


TAXES 


DRASTIC REFORMS AND EFFICIENT ADMINISTRATION 
UNDER GOVERNOR WHITMAN BRING MUTUAL BENE- 
FIT TO THE STATE AND TO THE TAXPAYERS 


September 1, 1916. 
Hon. Cuartes 8S. Wuirman, Governor: 


Sir.— By way of review of the work of the State Tax Department 
during your administration, the Tax Commission has the honor to sub- 
mit the following: 

Your Commission took office on the 15th day of April, 1915, and 
immediately after organizing made a survey of the conditions which 
had developed under the old State Board of Tax Commissioners. I¢ 
was found that reports of deplorable conditions had not been exagge: 
rated. ‘There was no working organization worthy of the name; offices 
were crowded with useless employees, whose salaries added greatly to 
_ the expense of the Department, but whose work will be looked for in 
vain by those who believe that the State should receive a day’s work for 
a day’s pay; thousands of dollars were paid out in salaries and expenses 
to those who never did any work, rarely appeared at the Department, 
and whose sinecures evan included the receipt of their salary cheexs 
by mail. 

Important decisions in various cases had not been made, resulting 
in the deprivation of the State and localities of hundreds of thousands 
of dollars in taxes which were justly and legally due, defective reports 
were received and hidden in out of the way places only to be dis- 
covered by chance months later, important letters were unanswered and 
altogether the situation was one of confusion, inefficiency and general 
demoralization. As a first step toward putting the tax work of the 
State upon a proper basis, the Commission drastically changed the 

[ 591 


structure of the administration for the purpose of creating an organiza- 
tion that should do the work in an economical and effective manner. 
It then proceeded to purge the roll of employees of a'l unnecessary 
names, and to create a real working force with which to conduct the 
tax business of the State, There is not to-day a single employee on 
the rolls of the State Tax Department who is not doing necessary, 
honest and capable work. 

Naturally under the circumstances which prevailed during the years 
when the Democratic party was in control the work could not be kept 
up to date. Upon assuming office the present Commission found 
that there were thirteen appeals from equalizations which had been 
made by boards of supervisors, all of which were in the condition 
known to lawyers as im statu quo. Nothing was being done to bring 
these important cases, each of which involved vast interests, to a defi- 
nite decision. Within one year after taking office all these cases save 
one had been closed, and this one is now ready for final decision. 


Centralized Administration 


One of the radical changes made by the Tax Law of 1915 was to 
transfer the Corporation Tax Bureau from the Comptroller’s office to 
the State Tax Department. This was for the purpose of instituting the 
progressive idea of centralization in tax administration. Under the 
mew arrangement the Corporation Tax Bureau has proved to be excep- 
tionally efficient in its work. 


In 1914, the Bureau yielded in corporation taxes... $11,634,000 
Th 19 The are aioe A ole eet ae ee 11,235,000 
Th 191 be (esamatel gee te ey eee eee 12,250,000 


This is the largest amount of corporation taxes ever obtained by this 
State in any one year. This is a gain of over $1,000,000 over the 
collection of last year. It has been done simply by the proper enforce- 
ment of the law, under which all corporations have been treated exactly 
alike, and the application of better and more effective business methods, 
particularly in the following up of delinquent corporations. 


Special Franchise Taxes 


At the beginning of the present administration the work of assessing 
special franchises was found to be in exceedingly bad shape. There 
was no responsible executive head for this work; no fixed policy of 
procedure; an embarrassing lack of supervisory authority; duplication 
and neglect of work; and failure of cooperation on the part of those 
charged with the administration. The work of special franchise valua- 
tions is one of the most technical and highly specialized functions of 
the State Tax Department. It demands the services of trained men 

[ 60] 


who must estimate the values of all public utility properties according 
to the same principles, if all franchise-owning companies are to be 
treated alike. Yet there was no satisfactory method in use for valuing 
the special franchises of steam railroads. In the matter of valuing the 
special franehises of telephone and telegraph companies it was found 
that more than one hundred such companies had failed to make any 
report whatever to the Commission, as they are required to do by law; 
corporation reports were found promiscuously scattered around the 
office, tucked away in obscure corners, thrown into boxes and crammed 
into almost every drawer of the desks and tables. The only way to find 
one of these original reports would be to search the furniture of the 
entire department. The facts in these reports had been very imper 
fectly transferred to the working sheets and the computations based 
thereon had only partially been completed. It was also found that a 
large percentage of these reports, on which the special franchise valua- 
tions were supposed to be computed, had been acknowledged and 
accepted in an entirely incomplete condition, no effort having been 
made to obtain the missing data, and thus the department was estopped 
from further inquiry. Many other reports were found concerning 
which letters had been written to the companies making them, asking 
for additional information, and to which letters no reples had ever 
been received. No effort had been made to follow up these inquiries 
although some of the letters had been written as long as six months 
before. Companies had frequently been requested to furnish informa- 
tion which had already been repeatedly furnished by them. Many 
reports had never been acknowledged, although received at the depart- 
ment in some instances as long as five months before. Neither memo- 
randum nor note could be found to indicate the cause for this chaotie 
condition nor any information to show whether further investigations 
of the reports were requested or had been made. All this has now 
been changed. Valuations are made by competent engineers appointed 
from the competitive Civil Service lists according to fixed principles 
enuneiated by the courts. As a result of the application of proper 
business methods to this work the valuations of special franchise prop- 
erty in the State for the year 1916 will show approximately an increase 
of $65,000,000 more than those for the year 1915 — the valuation for 
1915 having been mostly made by the former State Board of Tax Com- 
missioners while yet in office. The figures for special franchise assess- 
ments are as follows: © a Pope 


0 Sa er caer ok b toes bebe. .cmitsones. el th $604,000,000 


BAGG. sic ysis ba a ots vee Sie 25.358). sai Laveeeae 580,000,000 
SOG Cestinied) wuisvaqovs Sd. evailst use vdeow. 645,000,000 


An estimated increase in 1916 over 1915 of approxi- 
mmatebysit es tsauil ¢ ti 6 ki Seiseueeds: jd: ict awasea ble $65,000,000 


Mortgage Recording Taxes 


At the beginning of the present administration the same disorganized 
state of affairs was also found in the work of supervising the adminis- 
tration of the mortgage recording tax. In fact it is somewhat diffi- 
cult to convey any distinct impression of the utter demoralization inte 
which this work had fallen. Ralph E. Thompson and Seth T. Cole, 
men who had administered the Mortgage Tax Law since its inception 
and who were thoroughly acquainted with every detail of the work, 
were removed from office for political reasons by the preceding Demo- 
eratic administration. It was due to this fact that error followed 
error, and omission succeeded omission, until the whole work sank into 
dire confusion. County treasurers were ordered to refund mortgage 
taxes when no basis for such refund had been established. By such 
orders alone the State was defrauded of many thousands of dollars. 
The Mortgage Tax Law was repeatedly construed contrary to the opin- 
ions of the Attorney-General. In cases of mortgages, involving many 
millions of dollars of principal indebtedness, which covered property 
within and without the State, determination of the taxes due was indefi- 
mitely postponed. Official certificates and orders of the Commission 
were transmitted without the signature of the secretary or the seal of 
the Commission. Excess sets of books not required under the law were 
sent broadcast over the State at wasteful expense; approval of payments 
of expense for mortgage tax moneys was given without regard to the 
work done; the account books of the mortgage tax business in the State 
Department were found to be such a mass of error that the services of 
an experienced bookkeeper were necessary to straighten them out; no 
effort had been made to compel the filing of annual statements showing 
what advances had been made on Corporate Trust Mortgages and the 
liability for taxes in the cases of delinquent corporations; large quanti- 
ties of mortgage endorsement stamps had been ordered which, when 
delivered, were found wholly unsuited to the requirements of the work. 
These are a few of the complications which confronted those who, at 
the outset of the present administration, were required to take charge 
of the administration of the Mortgage Recording Tax. 


Reinstatement of Efficient Employees 


One of the first acts of the present Commission was the reinstate- 
ment of Mr, Thompson in his position as head of the mortgage tax work. 
This was done without prejudice to his rights in his suit for reinstate- 
ment, and subsequent to this action of the State Tax Commission the 
Supreme Court decided that he had been removed illegally, in 
defiance of civil service principles and without warrant of law. <A simi- 
lar decision had previously been made in the case of Mr. Cole who had 
already been reinstated by the court in his position. 


h 62] 


Tax Receipts Brought into Treasury 


On April 15, 1915, when this Commission assumed office, 17 mort: 
gages covering real property within and without the State were await. 
ing a determination by the State Tax Department as required by the 
Mortgage Recording Tax Law of the amounts to be paid to the State 
and to the localities interested. The aggregate amount of the indebted« 
ness secured by these mortgages was $149,999,900. On this indebted- 
ness an aggregate tax of $131,540.95 had been paid, all of which was 
being held back from the State and the various localities to which it 
was due, by the respective recording officers awaiting the determination 
and apportionment of the old State Board of Tax Commissioners. All 
these mortgages were determined and apportioned within one year from 
the time when the present Commission took office, which means that 
the entire tax of $131,540.95 had been made available to the State and 
the various districts entitled to its distribution. In addition, 200 mort: 
gages covering property situated in two or more tax districts, which were 
awaiting decision on April 15, 1915, have been determined, and as @ 
result of that work about $200,000 in taxes were made available in 
November, 1915, which ought to have been available for distribution 
in November, 1914. In all, between April 15, 1915, and January 1, 
1916, the present State Tax Commission has disposed of 660 cases of 
mortgage tax apportionment and realized for distribution to the State 
a total amount of $239,820.88. 


Proper Supervision Inaugurated 


One of the duties of the State Tax Department is to examine the 
records of the county clerks of the State to see whether the mortgage 
recording tax has been collected on all instruments subject to taxation 
and the computations correctly made, and also to ascertain whether all 
taxes collected have been regularly accounted for. It was found on 
the 15th of April, 1915, that thirty-two counties of the State had never 
been examined for this purpose, although during the period between 
July 1, 1914, and April 15, 1915, seven auditors had been employed 
for the purpose of making these examinations and their combined sal- 
aries amounted to upwards of $1,400 a month, exclusive of traveling 
expenses. During that entire period a complete and detailed exam- 
ination had not, been made in a single county. Since that time complete 
examinations have been made in twenty-two counties, and it is con- 
fidently expected that the entire sixty-two counties of the State will be 
completed within the next year. It should be stated here that since the 
reinstatement of Mr. Thompson in 1915. conditions in the Mortgage 
Tax Bureau have been radically changed and with the exception of the 
examination of County Clerk’s offices, which is proceeding as rapidly 
as possible, the work is now abreast of current demands. 

| [631 


Local Assessments Adjusted 


The Tax Law of this State requires that all taxable property real and 
personal, not exempt by law, shall be assessed at full value, The reason 
for this provision, is that all property may bear its fair share of the 
tax burden, and that the State may receive the revenue to which it 1s 
entitled. When the present Commission took office, it found that this 
section of the law was not being carried out, and that large amounts 
of property were either being greatly undervalued or else were not 
being assessed at all. The Commission immediately started a state- 
wide movement to induce the local assessors to comply with this pro- 
vision of the law. As the main instrument for the accomplishment of 
this purpose the Commission established the Bureau of Local Assess- 
ments — an entirely new creation of the present Commission. By its 
agency im the application of systematic method, local assessment con- 
ditions throughout the State have been vastly improved. Erroneous 
assessment-rolls have in the past been responsible for large losses to the 
State. In one year in the Forest Preserve counties, twenty-six times as 
much tax was rejected on account of errors in the assessment-rolls as 
was collected. By close supervision these errors have been largely 
eliminated, Assessment values have been improved throughout the 
State and it is estimated that the total assessed valuation of real and 
personal property for the year 1916 will exceed that of 1915 by 
approximately $300,000,000. The total assessed valuation of real 
property in the State 


An 19 Atewass ats carl. See ements eer $12,070,420,887 
Tt Asis wade oe tO cha: DSA IR rake: Beatie 12,274,000,000 
In 1916 (estimated) approximately............. 12,575,000,000 


Lower Taxes Result of Efficiency 


This will be by far the largest amount of real property value ever 
placed upon the assessment-rolls of the State of New York. It repre 
sents an incrdase in 1916 over 1915 of approximately three hundred 
enllion dollars. This vast increase in value cannot farl to lower the tax 
rate in nearly every community in the State, and to make lower taxes 
consequent upon reduced expenditures. 

Conditions obtaining under the old State Board of Tax Commis- 
gioners have been entirely changed. Wastefulness and extravagance 
have been replaced by a properly economical administration; the depart- 
ment makes regular quarterly reports to the Governor of its adminis- 
trative operations, supplemented by a quarterly financial statement 
complete in every detail showing disbursements and balances of appro- 
priations; chaos and confusion have been transformed into orderly pro- 
eedure; Civil Service appointees have taken the places of political hench- 

[ 64 ] 


men; disorder and demoralization have given way to coordination and 
ellicieney. ‘lhe Commission is strongly of the opinion that the results 
achieved during the present administration conclusively proved the wis- 
dom of the action of the Chief Executive in advocating the creation of 
the State Tax Department for centralized administration of the tax 
work of the State in line with the policy of the other states of the 
country noted for improvement in tax administration. 
Respectfully submitted, 
STATE TAX COMMISSION, 
Martin Saxz, 
President, 
Watter H. Kwapp, 
Commissioner, 
Ratru W. Tuomas, 
Commissioner. 


PRISONS 


DEMOCRATIC MISRULE ENDED. SING SING CELL BLOCK TO 
BE DEMOLISHED. NEW FARM AND INDUSTRIAL 
PRISON UNDER WAY 


Hon. Cuartes 8. Wuirman, Governor: 


Srr.— Governor Hughes realized that real prison reform was impos- 
sible under the physical conditions at Sing Sing, Auburn and Clinton 
prisons and he initiated the project for a new prison to take the place 
of the worst of these — Sing Sing. The Democratic administrations 
of Governors Dix, Sulzer and Glynn, which followed, wrecked that 
movement for a substitute for Sing Sing, threw the working organiza- 
tion of the Prison Department into a turmoil of politics and favoritism, 
and succeeded only in their evident determination to delay, where they 
could not stop, prison reform, 

Advocates of prison reform, with or without official position in 
the State service, were antagonized at every step. The central .author- 
ity of the Prison Department was dominated by politics and for polit- 
ical purposes. Thomas Mott Osborne, who had succeeded McCormick 
as warden of Sing Sing, found that every move he made for reform 
was checkmated in the Superintendent’s office. He brought to the atten- 
tion of the Governor one instance after another of this antagonism, but 
proof in a State’s prison is difficult to get and the Governor insisted 
on having incontrovertible evidence before removing the Superintend- 
ént of Prisons, John B. Riley. 

[ 65] 


A visit of personal inspection to the four great prisons of the State 


led to the official announcement that the Governor of the State was 
determined to revive and drive through to completion the project, 
_ first inaugurated in the time of Governor Hughes, to build a substi- 
tute for Sing Sing. During the legislative session of 1915 every en- 
deavor was made to force action on this important work, but because 
of the pressure of other matters the effort was not successful that year. 
In the 1916 Legislature, however, definite action was brought about, 
which resulted in two new construction projects to replace the Sing 
Sing cell house. The first contemplates the demolition of the old eell 
block at Sing Sing and the erection, upon the hill overlooking the pres- 
ent prison property, of a modern prison cell house; the second is the 
rehabilitation of the move to provide New York State with another 
large farm and industrial prison, supplementing the work the State 
has already started at Great Meadow. ‘This plan had its inception 
under Governor Hughes, when it was intended to locate this prison at 
Bear Mountain. Because of the objections of adjacent property own- 
ers and because of developments at Palisades Park, it became neces- 
sary to transfer this prison plan from Lear Mountain to Wingdale. 
This was done during the latter part of the administration of Governor 
Hughes. Preliminary contracts for the erection of a prison at Wing- 
dale were entered into, but shortly thereafter, during the Dix admin- 
istration, the construction was stopped. In the succeeding Democratic 
administrations of Sulzer and Glynn not the slightest attempt was made 
in any way to relieve the terrible conditions at Sing Sing prison due 
to overcrowding and to the bad location of its cell blocks. 

A eommission has been appointed for prison construction projects 
which will guarantee the completion of this important phase of the 
prison reform work. By the law creating the commission the State 
Architect, the Superintendent of Prisons “and the Superintendent of 
Public Works are members of that body, and to these three have been 
added Elbert H. Gary and Charles Bulkley Hubbell. Mr. Gary is 
widely known as a philanthropist with deep interest in prison reform. 
His large experience and high standing give guarantee that he will 
bring to the work of this commission ‘the highest type of executive 
driving power. Mr. Hubbell was formerly president of the Board of 
Education of New York city. His interest in prison reform work has 
been demonstrated by many years of quiet and efiective service in the 
movement for a real reclamation of convicts. This commission will pass 


upon not only the question of location of the new farm and ‘ndusirial 


prison to take the place of Sing Sing but also on the type of construction 
to be used both at the new prison and in the new cell house to be erected 
at Sing Sing. 

As. an example of the effective handling of the Prison Department 


[ 66 ] 


- 


on a basis of real reform and proper cooperation with the other depart- 
ments of the State, there was suggested in the tentative budget, and 
later approved in its final form, an appropriation of $50,000 for road 


-eonstruction by prisoners. The Superintendent of Prisons and Highway 


Commissioner Duffey are now cooperating in the work of using honor 
men of the prisons in road construction work within a limited radius 
of the four great prisons of the State. 

The record shows then that on entering office January 1, 1915, you 
found a Prison Department with medieval equipment and housing, an 
organization in a turmoil because of political mismanagement and a 
general situation wherein no constructive measure had been proposed 
for four years. ‘This has been changed by executive direction into a 
situation wherein the construction problems of the department are met 
fairly and squarely, the organization has been restored to an efficient 
working unit of the State’s business departments, and cooperation te 
extend both the activities of the department and the privileges of the 
prisoners has been made possible. 

The following table shows in detail the principal appropriations for 
the construction and equipment of prisons approved during 1915 and 
1916: 


$127,500 00 
67 ] 


Prisons 
Total Appropriated Appropriated Total 
Description Authorized 1915 1916 Appropriated 

Auburn: 

Toilet facilities ... SEDO. Sete s Fro rs $3,000 00 $3,000 0G 
Clinton: 

EO UGs) <a: seid’ « 3,000 00 ib 1 ile Ce a 3,000 00 

Tuberculosis hos- 

EA atiae gE it 75,000 00 10,000 OOS Coos ge oe wens 75,000 06 
New bake ovens... SOU Os Oh acne oe 5,000 00 5,000 00 
erp .oreele 85). Lp. LO DOO: ODF Sr HOR bare 10,000 00 10,000 00 

Dannemora: 
Northwest wing 40,000 00 20,000 00 20,000 00 40,000 00 
Repairs, kitchen 2 DO0K0OF 5 a nase : 2,000 006 2,000 0C 
Furnishing south- 

west wing ...... Oe OO ie vae ee eats i talk 2,000 00 2,000 00 
Engine and_gener- 

Ss y's «Whe whe CO0O80O tee ces pitt aicied 6,000 00 6,000 00 

Great Meadow; 
big ie, aaa 20,000 00 20,000 00 BOR ss seta 20,000 00 
Officer’s cottage ... U0 eee se tees 3 ts 5,000 00 5,000 00 
Shop building .... UG Ueno” © >, ain Gee . 50,000 00 50,000 00 
Matteawan: 
Steam boiler ..... 9,500 00 BBODI OO AAA AN 9,500 00 
Cow barn ..... vate F400 GORE BOLE Rts 2,400 00 2,400 0 
Dining room, etc... 60,000 00 ihre wee ae 25,000 00 25,000 00 
BORGES civisciwWipe ox AT Tt Ei Ae ee : 2,500 00 2,500 06 
Carried forward.. $295,000 00 $132,900 00 $260,400 006 


: Total Appropriated Appropriated Total 
Description Authorized 1915 1916 - Appropriated 


Brought forward $295,000 00 $127,500 00 $132,900 00 $260,400 00 
Beekman or Wingdale; . 


Construction sie) os ($10.300,000 00. ome eee 200,000 00 200,000 00 
Simg Sing: 7 

Water supply, etc. 3,000 00 8,000. 00 aaa ard 3,000 00 

New buildings, etc. 150,000.00 6 ns aia nists 200,000 00 200,000 00 


$2,298,400 00 $130,500 00 $532,900 00 $663,400 00 


Respectfully, | 
James M. Carrer, 
State Superintendent of Prisons. 


THE INSANE 


BETTER ACCOMMODATIONS AND BETTER TREATMENT 


INSISTED UPON BY GOVERNOR WHITMAN IN FACE OF 
VICIOUS ATTACKS. HIS PLAN FOR SCIEN- 
TIFIC SEGREGATION AS AN AID TO 
ECONOMIC HOUSING 


Hon. Cuartes S. WuitTman, Governor: 


Srz.— In meeting the problem of how best to care for the insane 
wards of the State, the first year of your administration was compelled 
«0 face a bitter attack from many directions which seemed bent on an 
attempt to force the veto of practically all items for hospital construc 
tion on the ground that they were needless expenditures. 

This attack, which came at the time of the consideration of the 
appropriation bills of 1915, was met by your response that you intended 
to allow and approve every item of hospital construction which pro- 
vided additional beds and housing capacity in these institutions. 

Suitable provision for the care and the treatment of the mentally 
afflicted was assured by this attitude, and in contrast to the preceding 


administration’s policy this announcement served notice on those who — 


were blindly attacking the appropriations that they would have te 


center their criticism on some point less vital to the welfare of the 


State. 
The records show that Governor Glynn, in the year in which he 
sought election as Governor, vetoed all appropriation requests for hos- 


pital construction. In ~1915, however, when the appropriations for — 


[ 68 ] 


hospital construction were up for final executive action, the Superin: 
tendents and representatives of the Boards of Managers of these Insti 
tutions were called to the Executive Chamber and asked to prove 
the necessity of each item of construction appropriation. Where the 
institutional representatives, supported by the State Hospital Commis 
sion authorities, demonstrated that the construction of new buildings 
was necessary to relieve overcrowding, the items were approved and the 
necessary authorization provided for carrying on the work to com: 
pletion. 

Like the accumulated debts in the business departments of the State, 
the hospitals had also been forced to accumulate a definite indebted- 
ness during the four years of Democratic Administration. In the case 
of these institutions, however, the indebtedness was humane, rather 
than financial, because by the ruthless exercising of the veto power 
over hospital construction items in the preceding years, these institu- 
tions, with an ever increasing population, and without new buildings 
in which to house this population, became overcrowded to a scandalous 
degree. 

The Whitman Administration was forced to assume the financial 
burden of an amount of construction for these institutions that in the 
natural course of events should have been spread over three years, and 
was forced to assume this obligation in its first year. In spite of 
the magnitude of this burden, you as Governor, in your public hearings 
-on the appropriation bills, in the spring of 1915, sought only from 
the hospital authorities the definite information whether each construc- 
tion item submitted represented a real necessity in the care of the 
insane wards of the State. On this basis alone, the construction items 
were approved or disapproved. 


A Record of Four Years 


Official figures for four years present a striking comparison. They 
may be set forth as they appear on the records: 

Governor Whitman, in 1915, approved appropriation items, includ» 
‘ing reappropriations and supplemental appropriations for the State 
‘hospitals, approximating $1,842,778. Of this amount, about $1,043,- 
‘000 was for new construction including Mohansic hospital. 

Governor Sulzer, in 1918, approved construction items of approxi« 
mately $665,225, exclusive of repairs. 

Governor Whitman, in 1916, approved construction items, including 
repairs, amounting to $364,220. 

Governor Glynn, in 1914, the year he sought re-election, did not 
approve a single item for construction among the State hospitals. He 
‘approved an appropriation of $150,000 for repairs, upkeep, equip: 
‘ment, etc., for $35,000,000 worth of State property. 

[ 69 ] 


The appropriation bill for 1914 carried a total of $6,285,911.89 for 
the maintenance of the State hospitals for the insane, of which $35,000 
was a redppropriation, this appropriation being for the fiscal year 
beginning October 1, 1914. The Supply Bill of that year provided an 
item of $275,000, instead of the $600,000 asked, to supplement the 
appropriations for the preceding year, which were inadequate, and the 
entire appropriation for miscellaneous repairs, improvements, emergen- 
cies and equipment for the fourteen hospitals having plants valued at 
$35,000,000 was only $150,000. There were no appropriations made 
that year for new construction. 

In 1915 you as Governor approved appropriations of $6,490,965 for 
the maintenance of the State hospitals, or over $200,000 more than 
was appropriated the previous year for this purpose. In addition, the 
Supply Bill for 1915 appropriated over $600,000 to supplement the 
inadequate appropriations of Governor Glynn in 1914 for maintenance 
of these institutions. The 1915 appropriations for new construction 
were notable, amounting to over $700,000, not including $300,000 for 
the Mohansie Hospital. The principal items were $200,000 for addi- 
tional accommodations for patients at the Brooklyn State Hospital and 
$110,000 for additional accommodations at Kings Park State Hospital. 
These appropriations were to relieve conditions in the metropolitan 
district. The bill also provided $200,000 for a new power plant and 
equipment at the Manhattan State Hospital, Ward’s Island, prepara- 
tory to making additions at that institution; $100,000 was appropri- 
ated for the completion and equipment of the power house at the 
Middletown State Hospital to provide for a large addition to that insti- 
tution, as advocated by you, after a thorough study of the situation; 
and $38,500 for addition to power plant, coal trestle, ete., at Bingham- 
ton, required by increased accommodations soon to be available at that 
mstitution. - 

The above does not take into account the appropriation of $300,000 
for construction and equipment of the Mohansic State Hospital, which 
has since been abandoned at your insistence, in view of the great oppo- 
sition which has been made to continuing this hospital, and this money 
remains in the treasury. 

The total appropriations for the insane for 1915 amounted to over 
eight and a quarter million dollars against less than seven million 
dollars appropriated in 1914, this increase being made up of over 
$1,000,000 appropriated for new construction and over $300,000 appro- 
priated to supplement deficient appropriations for maintenance of the 
Glynn administration. 

The appropriations made by the 1916 Legislature for the mainte 
nance of the institutions for the year beginning July 1, 1916, were 
sufficient for humane operation, the amount appropriated for main- 
tenance being $7,278,256.32.. The appropriations for construction 

{ 70] 


were important, $200,000 being authorized for additional accommoda- 
tions for patients at the Manhattan State Hospital and $200,000 for 
similar purposes at the Central Islip State Hospital, and $96,500 was 
made immediately available to get this construction under way. 


Overcrowding Relieved in 1916 


:: During the years 1916 and 1917 construction work in progress will 
‘provide accommodations for 1,856 additional patients. Inasmuch as the 
annual net increase in the population of the hospitals is approximately 
700, this will provide for the net increase during the current year and 
give an additional thousand beds towards relieving the excessive over- 
crowding, ‘This estimate is exclusive of the accommodations which 
will be provided from the appropriations made by the 1916 Legislature 
and approved by the Governor, which should nearly take care of one 
year’s annual increase in population. 

The purpose, as stated in the public hearings on the budget, is 
to provide additional accommodations as rapidly as possible, particu- 
larly in the metropolitan district where the need is so urgent, thus 
avoiding the necessity of transferring large numbers of patients from 
New York to up-State hospitals far from relatives and friends. 

-. The total appropriation for hospital purposes for the fiscal year 
which began July 1st, was $7,647,476.32. 


Financial Saving to State 


In this connection it should be borne in mind that the above figures 
take no account of moneys earned by the hospitals and turned into the 
State Treasury. Where patients have property or responsible relatives 
able to pay for their care, the State requires such payments to be made 
and collections from this source, together with receipts from the sale 
of old material and other miscellaneous sources, turned into the State 
Treasury, amount to nearly $600,000 a year. Collections on account 
of maintaining patients are increasing, as the expenditure of funds 
which enables the Commission to employ special agents whose duty is 
to investigate the circumstances of all patients admitted to the State 
hospitals has received executive approval. 

At a conference between you and the State Hospital Commission, 
held last October, plans were approved for the extension of the out- 
patient department work in connection with the State hospitals. Since 
that time, nine new free dispensaries have been established in various 
cities of the State under the direction of expert phvsicians from the 
State hospital staffs. These clinics are attended by large numbers of 
cases in the early stages of mental disorder, with the result that many 

‘ them are given ‘such treatment that commitment to a State hospital 
[71] 


is avoided. The saving to the State in this quarter alone in the increase 
of the happiness and health of the citizens of the State is very large. 
At the same conference, plans were approved for a field-worker in 
connection with each hospital. The field-workers have been of great 
value in increasing the number of patients on parole, inasmuch as some 
supervision of this kind makes it possible to discharge many patients 
at an earlier stage of their recovery than would otherwise be possible. 
The increase in the average number of patients on parole in their own 
homes, during the last two years, has amounted to 203 patients. 


Figured at the average cost of maintenance of $210 per capita, this — 


means an annual saving to the State of approximately $42,630. 


Governor Whitman Finds Hospital Crowding Due Largely to the Great 
Population of Harmless Cases 


Following personal observation of the character of many of the 
patients found in visits to the insane hospitals of the State, you directed 
a special investigation to be made to determine to what extent the over- 
erowding of the insane hospitals was due to the presence of the so-called _ 
almshouse type of patients who are harmless and more or less helpless, 
mostly suffering from senile dementia. Under the existing laws these 
patients are properly included among those to be cared for by the State, 
but their care does not require the elaborate and expensive housing and 
attention necessary for the so-called disturbed or violent insane. If, 
however, these harmless cases tended to crowd the institutions, the 
natural result was that accommodations for the disturbed patients were 
restricted and their care and cure made more difficult. 

The conclusion was reached from the results of the investigation and 
also from observation that a very large percentage of the inmates of the 


State insane institutions were of the type described who required for — 


their housing thd simple dormitory style of structure, and that their care 
should be of a low cost compared to the care of the violent type, and that 


the mixing of these two classes of patients In institutions equipped for 


the care of the violent insane made an unnecessary added cost, both in — 


the character of the structures built and the cost of maintenance and 
operation. 


Throughout the hearings at which the representatives of the institu- 


tions for the insane were present during the tentative budget confer- 


ence in the winter of 1915, inquiries were pursued along theser lines. 
The representatives of each institution were asked what the percentage 
of these harmless and helpless cases was to the total of each institution 
and if they could not be safely and more comfortably housed in ordinary 


dormitories, rather than in the wards of the institutions equipped for 


the ena ee insane, 


In each instance the superintendent of the hospital replied in the 


[ 72] 


affirmative and agreed that the structures already completed and pro- 
vided for would meet the medical needs of the disturbed patients for 
several years to come if the surplus population of harmless cases were 
otherwise provided for. 

As a first step in the movement for this new method of handling the 
problem of the State insane, you suggested that with the withdrawal of 
the State institution from the New York city watershed at Mohansie, 
the overcrowding in the metropolitan hospitals should be relieved by 
the construction of additional dormitory accommodation at Middle- 
town, which location is almost as accessible to the metropolitan district 
as the abandoned site at Mohansie. 

The development of the plan in this respect will, it is believed, be one 
of the most important steps in alleviating the condition of the insane 
wards of the State which has been suggested since the law was enacted 
which removed these so-called almshouse eases from the jurisdiction of 
the counties and made their care an obligation of the State. 


Principal Appropriations for Construction and Equipment of Insane 
Hospitals Approved 


The following table shows in detail the principal appropriations for 
the construction and equipment of State hospitals for the insane ap- 
proved during 1915 and 1916: 


Total Appropriated Appropriated Total 
Description Authorized 1915 1916 Appropriated 

Binghamton State Hospital: 

Boiler plant ...... $42,500 00 Ae CO OO le sts cel sg $42,500 00 

Godbtrestlens. iio. 8,500 00 SORIA LEER) thes. cater eis os th-w wage 8,500 00 
Buffalo State Hospital: 

Sewer lines ....... 8,000 00 eA Ga i 8,060 00 

Laundry equipment CSO OE Re isha a iar $3,500 00 3,500 00 


Brooklyn State Hospital; 
Additional accom: 


modations .:... 430,000 00 SOOT rer reine. ct can 200,000 00 
Storehouse .... UL OUC OU esti a 10,000 00 10,000 00 
Central Islip Hospitals / 
Acute hospital..... BOO 0U OO Bearer uke es 3 50,000 00 50,000 00 
Laundry extension, SAG O0ge 92. Sie one 8,000 00 8,000 00 
Water supply..... COO DOME 32 6,000 00 6,000 00 
Pipe line, etc: ..«.. ZOO 00 sesget ras a meta 20,000 00 20,000 00 
Gowanda State Hospital: 
BI OTEUB TVs « uacins.o's4 10,000 00 10000 0 eee. cette, s tas 10,000 00 
bE ee ee ZOD LOO we at. bn he 2,000 00 2,000 00 
Water supply ..... SRIOU:: ORD koe re e she 3,000 00 3,000 00 
Hudson River State 
Hospital: 
OULegee. eo elo uss » FOQUTU = 7.000008 S. . Meae lS, 7,000 00 
Carried forward... $798,500 00 $276,000 00 $102,500 00 $378,500 00 


[ 73 ] 


Dascriptign 
Brought forward. 
Kings Park State 
Hospital: 
Employees’ home... 
Water supply ..... 
Refrigerating plant. 
Blevator2.2%. "3°. <2 
Manhattan State Hos- 
pital; 
Power plant 
Nurses’ home 
Acute hospital 
Equipment . 

Fire apparatus 
Middletown State Hos- 
pital; 

Power house 
Tuberculosis 
Pita See ss ates 
PIpLErys «iss jwie,« swe 
Mohansic 
State Hospital .... 
Rochester 
Disturbed Hospital. 
St. Lawrence State 
Hospital; 
Grosse ed © 7 ioe an 
Bakery . 
Piggery . 
Willard State 
pital; 
Fire escapes ...... 


eer eee 


Hos- 


Total 
Authorized 


$798,500 00 


100,000 00 
6,000 00 
3,000 00 
5,000 00 


200,000 00 
12,500 00 
200,000 00 
17,500 00 
8,500 00 
100,000 00 


30,000 00 
2,000 00 


1,498,769 97 
27,500 09 
6,000 00 
2,400 00 
2,500 00 
12,000 00 


$3,032,169 97 


Appropriated 
1915 
$276,000 00 


100,000 00 
6,000 00 


6 2.6.8 © ye © 6S. 2 


200,000 00 
12,500 00 


oy ies ey, Ye eS 
©” © 6 eye 6 4 


ewe te 6 ae OF 


oe. 6 ob 0 © me Ss 


ae 650 @ oe 8 «2 


a ee 


eee o.6 ere HS 
SO “O'S, SFO pace. 0.6 


os 0 6 6 te08 (are 


$994,500 00 


Appropriated 
1916 
$102,500 00 


eseeerevreee ee 


29 © 0 a0. 20 8 0 


6 0 6 6 +e 6 68) 6 


CA, «Se 4 wees 


10,000 00 
2,000 00 


6,000 00 


12,000 00 


$227,900 00 


Respectfully, 


Anprew D. Morean, 
Freprerick A. Hiaerns, 


Total 
Appropriated 


$378,500 00 


100,000 00 
6,000 00 
3,000 00 
5,000 00 


200,000 00 
12,500 00 
46,500 00 
17,500 00 

8,500 00 

100,000 00 


10,000 00 
2,000 00 


300,000 00 
10,000 00 
6,000 OU 
2,400 00 
2,500 00 
12,000 00 


$1,222,400 00 


State Hospital Commisstoners. 


r SP 48 


CHARITY 


PERSONAL INVESTIGATION BY GOVERNOR WHITMAN AND 
SCIENTIFIC METHODS AMELIORATE CONDITIONS FOR ~ 
STATE’S DEPENDENTS 


Hon. Cuaries '§. Wurrman, Governor: 


Srr.— Sympathetic attantion to the situation confronting the eh 
itable and reformatory institutions of the State and proof of a clear 
conception not only of the importance of the proposition, but of the ex- 
ecutive duty and privileges in connection therewith, were made manifest 
at the beginning of your administration. 

This was shown in the public announcement that those departments 
having to do with the health and lives of the citizans of the State and 
properly those charitable and other institutions having charge of the 
wards of the State, must be organized and manned and managed solely 
with reference to thd exclusive accomplishments of the purposes for 
which they were created ; that if politics had crept into any of these de- 
partments, or institutions, its immediate elimination was demanded 
and the social welfare and humanitarian activities of the State kept 
free from such entanglements. “ Politics does not mix well with health 
or charity ” was a dec'aration by you which has been the motto of the 
State Department since then. The policy embodied in it has been car- 
ried out to the letter. Tremendous benefit for those who are depend- 
ent upon the State was derived from an early step taken by you. . The 
eareful study of the constructive and functional needs of all the insti- 
tutions, consultation with the loyal, unselfish and intelligent men and 
women of the State and country, who are devoting their lives to ameli- 
orating the condition of the poor, the mentally weak or otherwise un- 
fortunate, enabled the Executive of the State to obtain a grasp of the 
subject seldom held by any in a similar position. Personal visits of 
inspection and investigation at the institutions by which first hand 
information was obtained of prevailing conditions and methods aided 
also. The executive insistence upon an intel igent reason for every 
expenditure, the public hearings held in the matter, all assisted to the 
scientific consideration of proposed appropriations before presentation 
to the Legislature. At these hearings after a frank discussion with 
superintendents, managers and others interested as to necessity and ad- 
visability of proposed appropriations, public announcement was made 
of approval or disapproval of items. 

[ 75] 


In this way every prospective institutional necessity was canvassed 
and provided. for, and those interested including the Legislature were 
early informed of what could in any event be expected from the . 
Exeeutive. The heretofore prevailing method of determining at the 
last moment, in star chamber proceeding, amid the hurry of examina- — 
tion of “ thirty day bills,” the amounts that would or could be 
granted for the continued support of these institutions rendering the 
highest service to the State and humanity in general, has been, it is ~ 
hoped, forever abandoned. No longer does the arbitrary whim of a 
party boss or the exigency of party polities regulate charitable institu- 
tions or the amount of appropriations therefor. 

With the charitable and reformatory institutions the Whitman ad- 
ministration has been just and sympathetically liberal. Although con- 
fronted with tremendous financial and budget problems and the necessity 
for rigid economy in the State’s expenditur es 1t has nevertheless recog- 
nized the imperative demands for increased accommodations at the 
several institutions, especially those having to do with the care of the 
feeble-minded and delinquents and has encouraged and approved appro- 
priations looking to increased capacity to a much greater amount than 
for several years last past. The aggregate of appropriations for new 
construction and enlarged capacity at the State charitable and reforma- 
tory institutions, including authorization of contracts for the years 
1914-1916 are as follows: 


OOH care cesar thy .cinphaatirt “aby Sobeeaeee $368,609 
POTD Hele ho silliting . egies a es 584,039 
IOs tlowdin. pid Ol Pac eS. eee 876,000 


At the same time larger appropriations heretofore denied, notwith- 
standing increasing cost of nearly everything entering into human con- 
sumption, have been provided, the institutions deans pote en- 
couraged and the inmates benefited. 

The magnitude of the field covered by this group of public institu- 
tions may “be understood from the following: It comprises eighteen 
active and well-established institutions (institutions for the insane not 
being includdd) which represent a money investment of over fifteen 
million dollars, and in them the State is housing, feeding, clothing and 
caring for, according to the most enlightened and advanced scientific 
and humanitarian methods, an army of upwards of eleven thousand 
dependents, delinquents and defectives. 

The following table shows in detail the principal appropriations for 
the construction and equipment of charitable institutions approved 
during 1915 and 1916: 


[ 76 ] 


Description 
Albion 
Cottage 
Batavia 


Tee S MP Le. we 


Fire. protection.... 
Bath 
Farm house 
Bedford 
Furnishing cottages 
Furnishing cottages 
ice lhowse:... .i... 
Two cottages:..... 
Elmira 
Shop 


eee eevee 


et Bie Coe 6 6 6 eo s+ © 


eee ee ee ee 


Land 
Hudson 


oee ee eeae 


MM cor sch ae eed 
Hospital 
Industry 
IN aa 
re 
Railroad pass...... 


Iroquois 
Reconstruction 
Reconstruction 
OE ae ea 

, Napanoch 

Plumbing 
Land 


“re ee ee ee ee ee 


Seeecavense 6 6 
ae 2 616 C0 6 2 EO 0 
over eee wee eee 


nen O66. eS 6) 6 6.8 6 


BRIG ABs, ss ool os» 

Cottage equipment. . 
_ Hospital equipment. 

Laundry equipment. 
Oxford 

Sewage disposal.... 

Water supply...... 


Carried forward.. 


Charitable Institutions 


Total. 


Authorized 


$30, 000 


2, 500 
5, 000 


4,000 


13, 000 
3, 000 
2, 000 
5, 000 


65, 000 
5, 000 
25, 000 


5, 000 
15, 000 
104, 423 


2, 000 
12, 000 
15, 000 
2, 500 


62, 000 
4, 000 
3, 500 
2, 389 
7, 500 

10, 000 
7, 500 
7, 500 
2, 500 


5, 000 
2, 400 


$446,413 


00 


00 
00 


00 


00 
00 
00 
00 


00 
00 
00 


00° 


00 


47 


00 
00 
00 
00 


00 


00 


00 
00 


Appropriated.: Appropriated” - 
1915 1916 
Ln ee $15, 000 00 
A eae re 2,500 00 
At a 5,000 00 

LL LRU ie ts gohan mae 
Foe OG Aer yo csc ee 
diese Tes eS ek 3 3,000 00 
a kor a 2,000 00 
Sie. atk 2,500 00 
30, 000 00 35, 000 00 
Pes eae ae 5,000 00 
Se eG: 25, 000 00 
RL CRIN ues Sal Neer 
Pes OC Stet pee oe ets 
a Ar pe ee « fo 
Pere ce se 2,000 00 
lene e tec Ja 12,000 00 
Oo oe WR ee 15,000 00 
ae ee 2,500 00 
DOUG OUCEE. Soka lee ties 
F0ta soe, ohacs shows 1,000 00 
berincemerer ale: Muna 2,200 00 
RO eee rae 5; 000 00 
Siok ae rep ied 3,500 00 
G2. OU OU a tater ae ater or 
BEOOUT O0r ee eee eaten t 
PRU Oo” Gomer eee 
ie OOO Gb he cre coco ote 
rah re se Ree ipo 2 7,500 00 
Sie ae etek sw 10, 000 00 
apa § Bebop ete 7,500 00 
aS ee 7,500 00 
ts ei 2,500 00 
Tee UT RA 11 ae AE ee Ara 
ea OO tated seca la thee ie. 8 
$255,713 02 $173,200 00 
eye 


Total 


Appropriated 


$15, 000 


4, 000 


13,.000 
3, 000 
2, 000 
2, 500 


65, 000 
5, 000 
25, 000 


5, 000 
15, 000 
104, 423 


2, 000 
12, 000 
15, 000 

2, 500 


5, 000 
1, 000 
2,.200 


5, 000 
3, 500 


62, 000 
4, 000 
3, 500 
2, 389 
7, 500 

10, 000 
7, 500 
7, 500 
2, 500 


5, 000 
2, 400 


$428,913 


00 


. 00 


00 


00 


00 


00 


Description 


Brought forward. 


Randall’s Island 


DOGS sree oe ee “ 


BIOGfS cia oc es 2 
BGUGE OAs cules at eee 
Quarantine ....... 
Rome 
Plomping vita... 18 
Boiler house..:.... 
dquipmentii. sss. s 
BARRE y occ eet ee i 
Bonyea 
DST MRGOLY set. os 
Water supply...... 
Coli .storage.).. .... 
Syracuse Institution 
Heating system.... 
West Haverstraw 
Sioupital yi1,..'k weve 
ASUOLEY ots taelk sos 
faa ae oa i Par 
Yorktown Heights 
Engineering, etc.... 
Thiells 
bad Li}. 21: a mena RAD ae 
CHEW DATO ks cite a 


Reconstruction 

Service building.... 
Nurses’ home....... 
Sewer lines........ 
BT ss yee aa, Ama EN a 


Four cottages...... 
Conduits, etc....... 
Equipment ........ 


$1,148,413 02 $434,713 02 $365,200 00 $799,913 02 


Total Appropriated Appropriated Total 
Authorized 1915 1916 Appropriated 


$446,413 02 $255,713 02 $173,200 00 $428,913 02 


2,000 00 2,000) 00 ving a. a es Pet 2,000 00 
2,000 00 2; 000 0O7 "28 ten a. 2,000 00° 


3,000 00 3). 000.00 a 200 set dite 3,000 00 
5S D00200; ioe eee 5, 000 00 5,000 00 
5, 000 00 §, DOD OD e680 Seyne a ee 5,000 00 

20, 000 00 20, 0005005. wien cures 20,000 00. 
T5CO00+00. tice sie 15, 000 00 15, 000 00° 
O2000 001 1. see ae 2, 000 00 2,000 00° 
BOS G00 "00. cscsn cas ae 20, 000 00 20, 000 00 
B5 000 "Oe ee ewe ae 5,000 00 5,000 00 
35, N00 D0 se pee 5,000 00 5, 000 00 
17, 500 00 6, 000 00 11, 500 00 17, 500 0 

BSFOO0 L00LN; Uae Coe 25, 000 00 25, 000 0 
5 BOD TRO ee eee 3,500 00 3, 500 0 
T D000, gece kat ka ae 7,500 00 7,500 0 
10, 000 00 10,.000:0080*—:. snes 10, 000 0 
11, 000 00 11,000, D0ae..2.. ees 11, 000 00 
3,500 00 3, b0O<O05 2: <5 cameos 3,500 00 
3,000 00 3;,000:'00.-.,.) eee 3,000 00 
3, 500 00 3, BOD. 00g. 2. sate 3,500 00 
60, 000 00 GOOD 60s seen mee 60, 000 @ 
50, 000 00 BU O00 iia. «ae 50, 000 00. 
SOOO HO te ten, cag eee 5, 000 00 5, 000 0¢ 
b OUGOU se eta 5, 000 00 5, 000 Of 
60, 000 00-2 oa eee? 15, 000 00 15, 000 06 
168, O00 G0n, 22. eee eee 42,000 00 42,000 00 
30; 000-00. = ean kas 10, 000 00 10, 000 00 
15; 500 206.5). Sua 15, 500 00 15, 500 00 


Respectfully, 
Wiiit1am A. Marurry, JR., 
Fiscal Supervisor of State Charities. 


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